FANI P~~NCHAYA1 822 INtLi9O AN E~(ERCJSE IN TV · PDF file,iilages, Radhanpur taluLa 9, and ILlnkrai taluka B vLI1aqi~, with e total population of 77,779. With the addition of 28 villages,

822 INtLi9OFANI P~~NCHAYA1

AN E~(ERCJSE IN

( ~MPU(14 I TV ~1APIh6EMEN7 1 PARTICIPATION

t~pn-r~~arch an strt~ngttsai~jn~ co~imtsfl1typart1LIp.~t~~%nin tIre Rural Dr3nk~ng W0.t~ Supply Schea~eo~ tSi~ 6.ujarat (iov~rnment~ en~.uring 4ocu~ng On P.O~Qfl in~rcq,ciin2c and ecologicul regereration o+ arid zone rural

~

Sub~tt~d to

11W R(WAL NETHERLANDS EMBASSYN~W DELHI

II~E 6UJARAT STATE WATER SUPPLY I’ SEWAE~ DOARD

fly

PRC~. PAMESH M. ~4~uTDI RECYD~I

FOUNflATIOt~ ~OR PIJELIC INTEREST (FPI)A~J-IIc~.H~2~, VASUNDHc~RA

AH~EDA~fl -

INDIA

SEPTEMI3ER 1990

£

822—90—7970

/

‘‘~~~~‘CC’

P A N I PAN C H A Y Al

AN EXERCISE IN

MANA(EMENT I. PARU~IPAT1 ~N

dLt1c,rs—rL~.earch in ~-trL~nQthIninQ ccUfUM.Jflityp.srtlLipdticln in (lie Rural Drinking W�st~i Liupply Schemec.f tIi.~- L’4ijdrat Governments en5urlng ~0CU5iflg 01) WOmen in

~‘cc.i~jrnic and ecological regeneration of arid zone rural(JLvel~I1Impnt

Submitted to

[HE ROYAL NITHERLANDS EMBASSYPJEW DELHI

ANfl

HE £LJJARAT STAlE WATER SUPPLY I~ SEWAGE BOARD

By

PRflF. RAMESH M. PHAITDiRECTOR

FOUNDATION FOR PLIE~LiC INTEREST (FPI)ASHISH, 25, VAStJNOHARA

AHPIEDAHAD - 3EJUOObI NDI A

SEPTEMBER 1990

.19

0

I NTRODUCT I ON

Can a rural drini ma water supply scheme in an

~u ~uiie be formulated, mnuplecnented and operated

rougri corr~runity participation’ Can Fani Panchayat,

ar organisatioflal structure formulated for the purpose,

1t~u lo irds community participatonD How can women, who

are the main beneficiaries of the scheme be mobilised

for- participation and management of the scheme through

~r1 F-anchayats” Can the time and energy of women.

~t~J Fr-OiTI the drudgery of fetchmna water, be iit~1i~ecJ

tur proLiLictive and gainful activities’~

This report has tried to answer these questions

through action—research. The Foundation for Public

intur~st (FF1), a consulting agency, has played a dual

role~ (a) carrying out field—studies and generating

riuld-eperience and (b) supporting, perceiving,

~ormolating, implementing and drawing lessons from

- I c:~—~”~~t1nq :—~ b1lm~3t~cr~ t~vitic~ cf

(1o ~I ~‘ Employed Women s Association (SEWA)

~EWA has documented its experiences through

~L.erdl progress reports. FPI has also relied upon

(Hr-jr L’perlence and documentation.

However, FF1 has carried out several field—

~tudi.~s independently ‘for this report, as well as for

1

I JelIitr , they con~ti 1u~e tiittielJ activitie~.

huH oi this report.

The report has documented several ideas,

concepts, approaches, priorities and particularly

operational details for developing community

participation and management. It has also made

recoirmendatmons for women’s participation within

community—based organisations and wherever necessary,

oUtside it.

it is hoped that the findings and insights of

this report will lead to economic empowerment of women

throimqr-m orqanxsations who recognise and accept their

producer--worker status and strengthen it.

1trm September, 1990 Ramesh M. Bhatti-ihuiiedabad Director

Foundation ‘for Public Interest.

ii

ACKNOWLEDGEMENTS

I record here our deep sense of gratitude

I1,~-m~,mJ~ OLIW~ and particularly Ms. Reriana Jhabvala for

inviting and involving FPI in conceptualising and

jrCr ~*r~r1r- t~on—research. I also thank Ms. Reema

Iflc~.’.~ty. the project coordinator from SEWA, whose total

usyotiuri arid dedication to the project and to women in

Sanas~antha has made the action—research relevant,

re~listmc. practicable and meaningful.

I am thankful to the Gujarat Water Supply and

Sewage Board, particularly to Mr. C.C. Shah, Senior

E~ecutmve Engineer at Radhanpur, who hosted the project

and introduced SEWA and FF1 to field realities, and gave

valuable guidance.

I thank our colleagues in FPI, Mr.

Shani-erbhai Bhatt and Prof. Vikram Pandya for

statistical and analytical work, and Mr. Vipul Shah1 Mr.

Rajentira F4hatt; Mr. Ishwarbh~i E~rahmbhatt, Ms. ~

bti~ti. and Ms. ~anchanben, who have carried out the

tield—-worj. under difficult conditions.

I also thank my office staff, Mr. Prakash and

Mr. Jayesh Joshi, who have untiringly carried out the

secretarial work under severe pressure of the multiple

activities of FPI.

iii

r~ow can I foract to thank my wife Ela Bhatt and

family members, who have silently and smilingly suffered

my anxieties, tensions and long hours and days of

.~bsenc~ from fjirij I y 1 ). tL~

Ramesh N. Bhatt.

iv

NOEX

PAGE NO

I(iT1-~iJDtJCTlON £ to ii

ACIIIUWLEDGEtIENTS iLl to iv

INDEX

CHAPTER:

1. PANI F’ANCHAYAT: EVOLVING ROLE PERCEPTIONS

2. COMMUNITYPARTICIPATION. IDENTIFICATION OFISSUES

APPENDiX: 2.1

Sorb-ECONOMIC COMPONENTSAS INPUTS FOR

,~,1Ai1a,s8LE REGILINAL 1)EVELIII’MENT

~. E~POSLIRE TO WATER RELATED TECHNOLOGIES

4. Pi-~lI PANCHAYAT: LEGAL FRAME WORE

~ KUL~ u’i~. FLi CTIC~~..G CF PANIPANCILAVATS

1~-~LES5.1 to 5.20 si to

• LiNEMAN VITAL L INk OF THE PAW PANCHAVAT J(~) to

lADIES ~.) to ~,.11 116 to

7. RFCOMMENDAT IONS : GSWSSBSROLE PERCEPTION 126 to

0. E4IENUED ROLE (iF PANI PANCHAVAISL’0r9-REHENSIVE WATER RESOURCE DEVELOPMENTAPFRCJACH 151 to

APPENDIX ; 8.1

DESERT DEVELOPMENTPROGRAMMESAND PARTICIPATIONOF PASTORAL COMMUNITIES

APPENflIX : 8.2

~ihhLE~ SECLJRI TV SYSTEM(lLI[LINE OF VILLAGE-LEVEL EXPERIMENT IN THEARID—LONE REGION OF I3ANASI’.ANTHA

c. POLICIES AND STRATEGY OF ORGANISINGWOMEN ECONOMIC-ECOLOGICAL REGENERATION 170 to 177

I to 18

19 to 33

34 to 43

44 to 53

54 to BC)

1 OC)

115

125

I 5()

3 e,c’

V

CHAPTER 1

PANI-PANCHAYAT ; EVOLVING ROLE PERCEPTIONS

1.1 The Netherland Government, under the Indo—Dutch

Cooperation agreement, supports rural drinking

water and sanitation projects in Uttar Pradesh,

Gujarat, Himachal Pradesh and kerala.

l.~ lrm Gujarat State, such schemes are (1) designed

i planned ‘iii iirplemented and. (iv) maintained

b~ the Gujarat State Water-Supply and Sewage

n~,-~rd (GSWSSB)

[Inc of such schemes implemented by the GSWSSB is

~ Santhalpur hegional Water—Supply Scheme

implemented in the kadhanpi~r—Santhalpur talulas on

the western edge of Sanaskantha district of Gujarat

State.

1.4 The geological and hydrological conditions show

that 70V. of the area in Gujarat consists of rocky

subsoils and has acquafers containing brackish or

salt water. The remaining 30/., mainly the eastern

and south—eastern land mass does have fresh ground

water. Replenishment depends upon the infiltration

of rain—water.

1 .~ Whenever adequate water—supply of acceptable

quality is not available, the Regional Water—Supply

1

bcheme is t-ormulated tor a group of villages,

ranging from 10 to 100 in number. It includes the

maintenance ot sources, inlets, treatment—plants,

reservoires, pumping—stations and pipelines.

GSWSSEJ also shoulders the responsibilities of (i)

operations and (ii) maintenance.

SUMMARYOF SANTHALPUR REGIONAL WATER—SUPPLYSCHEME

(SRWSS)

1.~ He identification of the drinking water problem

was done in 1978, which resulted in the

finalisation of a scheme by June, 1981. It covered

72 villages at the cost of Rs.873.4 lakhs, with the

support of funds from the indo—Dutch Agreement. It

was implemented and completed by December 1986 at

the revised cost of Rs.977 lakhs. The drought

years of 1985-86, 1986—87 and 1987—80 established

the need for such a scheme. Now it is realised

that 28 additional villages will have to be linked

up with the scheme as they face acute water

shortage. The total length of the main pipeline

‘S 90.81 kms., while the total length of the

branch line is 300 kms. At village level, the

facility consists of a ground—level cistern of 12 —

hour capacity, stand—posts with 1 tap for a

population of 1O~, and a cattle trough. The

present coverage in banthalpur taluka is of 50

,iilages, Radhanpur taluLa 9, and ILlnkrai taluka B

vLI1aqi~, with e total population of 77,779. With

the addition of 28 villages, the coverage will

iIicr~a~e to 9~ vi1laqe~ with a population of

1.7 Encouraged by the success to the Santhalpur

Regional Water-Supply Scheme, the Netherland

Government is supporting the GSWSSB to take up

three new schemes. They are;

1. E.-tention of the Santhalpur scheme to other

villages of Santhalpur—Radhanpur talukas.

2. Sami—Harij scheme in Mehasana district. This

scheme is implemented in Sami and Harii

talukas, which are adjacent to SRWSS.

3. Lathi—Liliya scheme in Amareli. district ot

Saurashtra region.

1.8 Though these schemes have a large technical and

engineering component, there is a growing awareness

in the GSWSSBabout the socio—economic component

and community participation, at the designing,

planning, implementation, operation and

ma~rct~nance stage. The Netrierland Government sends

evaluation and review missions every si~ months.

The present study covers periods covered by Review

ihe present study covers periods covered by Review

riission No.10, 19, 20 and 21.

FOUNDATION FOR F’UDLIC INTEREST (FPI)

1.9 FPI is a voluntary organisation, registered as a

Trust in 1975. The focus of its activities is the

promotion of socially needed organisations. ~o

tar, it has promoted the following organisat.ions

which now work independently.

~i) Consumer Education and Research Center (CERC)

(ii) Ahmedabad Wom~ns Action Group (AWAG)

(iii) 5 regional womens’ handloom cooperatives

in Mehsana district, and 25 primary handloom

weaving cooperatives in Sabarkantha district.

(iv) FPI has done consultation work in tr~

following areas:

(a) Legal Aid in tribal areas

(b) Rural housing for the tribal poor

Cc) Micro water—harvesting structures in

Panchmahal districtCd) Census and rehabilitation success of

handloom weavers of Kutch

Ce) Pilot study of the Janata Cloth Schemes-or handloom weavers.

(f) Zero—poverty block level planning forValod talula, Surat district

(g) Milk producers of the arid—zone; Study of22 primary cooperatives in post—droughtperiod in arid—zone of Banaskantha.

~h) kegiorual development plan for Santhalpur-

F~~idhanp&ir talulas of Esanaskantha district.

These are all action—oriented consultations and

studi~s done by FPI.

1 . 10 Fer,~u5e of this background in consultation as

i as concrete field—work, FPL has undertaken

consultation responsibilities with (SEWA) as a

field agency as well as an implementing agency.

1.11 FPI has carried out several field studies and

provided consultation to SEWA for implementing a

major regional development project having women

~ vanguard of a leadership roles. The

formulation and implementation of the women’s

project has been reported separately. The

results of the action— research have also beeri

reported separately.

1.12 The present study consists of the Report of

Action Research on Pani Panchayats. The

objectives of the action—research have been

clearly formulated and are presented below:

RATIONALE AND OBJECTIVES OF THE ACTION RESEARCH

1.13 The supply of safe drinking water to rw,~J

communities has lead to several new problems

which can be resolved through active

participation and involvement of client

communities. They can be briefly defined as

follows

S

Inefficient operation of the schemb, lie

delayed maintenance and repair, leads to

irregular and inadequate supply of water and

consequently social tensions at the village6

level.

Cb) MiMed use of drinking water strain~ tie

supply system on the one hand and leads to

comparative neglect of traditional w~ter

resources which support the neeas Or

non—drinking domestic use, animal husbandry,

artisan groups and agriculture, on the other.

1 . 14 The solution to the above problem areas can be

wQrlCd out if the action research is carried out

~-~itt~ general as well as specific objectives.

They are spelt out and stated below:

GENERAL OBJECTIVES

1.15 The objectives of the action—research will be

(a) to ad~.’ise the GSWSSPon the establishment

and effective functioning of Pan.i

Panchayats,

(b) to guide existing and prospective Pani,

Panchayats for effective functioning, and

(c) to find out whether the F’Ps can

contribute towards the cost of maintenance

and repair.

6

SPECIFIC OEsJECTIVES

1.16 ihe specific objectives at this initial stage

would be

a) to assess the reasons why some villages are

reluctant to form Pani Panchayats (PP) or

to nominate members to it,

(b) to assess the optimal composition of PPs

under existing conditions and constraints.

Cc) to identify the training needs of tN

members of the PP,

Cd) to study the need for additional incenti~~

for the members and villages as a whole,

(e) to monitor the organisation and identify

regular agenda items for discus~ion,

(f to advise on the possibility of making

PP a development organisation with

leadership and participation of women.

Action—research on FPs was to be c~ • icci out ii.

the following stages;

Ci) discussion with the officers arid staff os

the GSWSSBto understand their perceptions

of the problems and needs for effective and

s~rco th f uiruc t. toning of the pro 3cc t and Pan i

F a ri c hay a t

ii ) identi f iLatiun of Pani Panchayats working

METHODOL0 GV

1.17

the

the

~,‘ery ~el1, average, or were inactive,

till) Selection of 30 sample PPs representing

various states of functioning,

C iv) identification of specific issues and

di~cu55ioflS with Pani Panchayats about

their functi

iv) preparation

members to

(‘.i) study of

why they

1.18 Ira a regional water supply scheme, the following

i-acilities exist at village level : a cistern,

scand—posts, drainage for the spill—over,

water—trough for the cattle.

The expectation of the GSWSSB is that the

village level facilities should be properly

controlled and managed by the village

cuururiuinities and that they should also contribute

monetarily towards the maintenance and

~iperational costs of the water—supply scheme.

ii aua~h c~ coiitribution of Rs.~ per household has

L,.L1 stipulated, it i~ riot being contributed by

tri~ households and riot collected by the village

me GSWSSEI also expects that

ultimately the regional schemes should also be

oning,

of soclo—economic profiles of

understand their participation,

atleast S villages to understand

resist or non—cooperate in

starting a PP.

1 • 19

B

managed by the beneficiary rural communities.

In each and every village, end in th. case of

small villages at a group level, a statutorily

constituted and popularly elected Gram

Fanchayat (GP) has been functioning. However,

the GPs have’ insignificant participation by

women; and drinking water and sanitation issues

are given low priority. They are unable to

foster community participation. It is to

overcome this constraint and increase community

participation that social organisations such as

the Pani Panchayat have been conceived. It is

e~pected, as its name suggests, to handle issues

pertaining to water—supply and sanitation. The

formation of the PP has been accepted by the

State Government and it is seen as an

institutional input for the short—term and

long-term success of the Regional Water—Supply

Sc heme

• ~‘ lLJliIrLa~ £ I ~ Liii C I Uie I an i rai,L il~y~ I IlciS bt~t~ii

detiiieui by the chief executive engineer (GUJ.20)

as follows:

1. (a) Two male members

(b) Two female members

(C) One lineman or linewoman

9

id) A Sarpanch or deputy Sarpanch of

the village Panchayat as its chairman.

In a group Panchayat, a senior

panchayat member will be the chairman.

2. The Sarpanch will be the chairman of the Pani

k anc h4yd t.

Equitable representation is to be given to

v3rlous socio—economic groups.

4. Urily those persons are to be selected who are

well—motivated to participate.

5. rhe village Panchayat has to pass a resolution

in order to form a Pani Panchayat and convey it

to the higher—level taluka and district

Panchayat. -

BRANCH-LINE COMMITTEE (BLC)

l.~Z ia) Heads or Chairmen of the Pani Panchayats of

the villages covered in a branch line of

the regional scheme are to be the members

of the BLC.

~u) ihe engineer—in—charge will be the chairman

of the Branch—line Committee (BLC).

RESI-ONSIEiILITIES OF THE PAN! PANCI-IAVAT

i.2~ 1. Participating in the selection of the

location of village—level components.

Selecting the stand—post location, so that

10

drainage of spilt water is facilitated.

3. Considering the proper re—use of spilt

water for public gardens, school gardens,

etc.

4. Ensuring that the cattle—trough is

sufficiently away from the stand—post.

5. Ensuring the adequacy and regularity of

water supply at the village level for the

human and cattle population.

a. Highlighting problems and possible

solutions pertaining to water—supply hours,

duration, control and the general use of

village level components, viz, cistern,

stand—post and cattle—trough.

7. Suggesting ways to promote efficient,

optimum operation of the scheme components

in the village.

8. Discussing problems related to the above

aspects as well as repairs, maintenance,

and cleanliness in and around the

components.

Taking necessary steps to avoid wastage of

water and its misuse.

10. Creating awareness among the village

pt~poiati~ii about. health and sanitation.

11. leeping in touch with the local people

regarding their water and sanitation

11

prob I ems.

~. A~sisting the Fanchay~t on issues rei~L~d

to water—supply and sanitation.

WOkI II.IG RULES OF THE PANI PANCHAYAT

1.24 1. A meeting of the Pani Panchayat should be

held, preferably once a month.

2. The Sarpanch of the village should present

a copy of any resolution passed in a

Pani Panchayat meeting to the Branch—Line

Committee after each meeting.

The venue of the Pani Panchayat meeting

shall be the Panchayat Office.

FU1ENIIML OF FANI PANCHAYATS

1 . 1. The PP can be used for introducing

income—generating activities for women who

..~ ~ t”eir ~c~1 tim~ ~nd ~r~rnv for

productive won

2. An income—generating activity can be

instrumental in preventing the migration of

households to other regions.

~. The study can contribute towards the

development of the soclo—economlc component

of the water—supply scheme.

4. Long—term success of the pro)ect depends

upon effective involvement of the

community.

12

Uhe PP can be a vehicle for the overall economic

tit~ve1upment of the area.

LUHIIJEiUI ION OF TIlE STUDY

The Review Mission of the Nether land Government

(Guj.lB) has the following e>~pectations of

the present action—research. Its summarised

version is as follows:

(1) Part of the research will contribute to the

post—implementation phase with special

emphasis on operation and maintenance and a

broad process of social and economic

development in the project areas.

(2) It will provide important inputs both for

GSWSS&and the review and support mission.

(3) It is a record of a unique and

challenging attempt to formulae at an

approach which integrates water—supply

and sanitation with the social and

cultural potential of the project area.

(4) ~t x~ a point of entry for development

processes leading towards a gradual

improvement of the quality of life of the

village communities, who at -present live at

subsistence level

(5) 11 attempts to arrive at a better

13

ur.derstanding of the vital issues.

~) It leads to the implementation and

formulation of short, medium and long—term

strategies and policies.

~7) It translates research findings into a

programme of action for further

socio—economic development in the areas

covered under the scheme.

ESSENTiAL FACTORS FOR EFFECTIVE COMMUNITY PARTICIPATION

1.27 1. Promoting catalystic core groups that

would promote community participation.

2. A clear understanding of the link between

participation and specific development

prr~r~r~mmes.

1’I~bi1ising support from government agencies

at various levels as well as stimulating

community efforts to receive government

programmes.

During the period between the visit of the

Ro,.’i~ and Support Missions (RSM) Guj18 and

ouj--19, the progress made towards

action—research and identification and

operationalising development activities’ ha.

contribut.d towards the formation of an

approach which has been summarised by the Review

and Support Mission as follows:

14

1. To open and improve communications between

related government agencies and the village

communities aiming at (a) proper need

assessment and (b) an improved

understanding and development of consensus

on pribrities.

2. To process good ideas and identify needs

with an eye towards actual planning and

implementation; and also, planning and

implementing and supporting socio—economic

programmes.

3. It is of paramount importance to establish

a proper institutional base for

tLarlhdLi~iuIy Lile relationsnip oetween ‘a’

the village community (b) government, and

(C) other relevant interests.

1.29 From the conceptual framework presented in the

earlier paragraphs, progress is visible in two

well—defined directions;

1. The GSWSSB has set up PPs in the

post—implementation stage and is keen tr~

make an effective organisation controlling

thw waste of water, utihising spill—ovens,

prntecting installations and contributing

monetarily towards the maintenance and

operation of the scheme. It is a

15

village—level mechanism for voicing

complaints and redressing grievances. The

GSWSSE~desires to make PPs effective within

the e,isting framework with the supportive

role of a voluntary agency.

Action—research is a step in that

direction.

The Review and Support Mission views the PP

as an on—going institutional form; or a

social organisation which accelerates the

process of socto—economic development,

with women playing a leading role. The

water—supply scheme is a critical

LJ~velopnI~rltr~1 input and should lead to

further socio-economic development of the

region, with the coordination and

collaboration of other government

departments, semi—government agencies,

NGOs and the voluntary sector. How can

Pani Panchayats become the mechanism to

generate such processes? Or, to what

extent can the PPs play such a role?

1 . 30 both these perceptions are based on the

post—implementation phase. It is presumed

that regular water—supply is assured and one can

proceed towards developmental goals. However,

two major areas of inquiry have to be squarely

16

taccO.

~l, Should the formation of a PP be the first

step or a pre—condition for planning a

Regional Water-Supply Scheme”

(2) Lik~e the individual village—level scheme,

should such Regional Water—Supply Schemes

be ultimately handed over by the GSWSSB to

the rural communities~ What will be the

process, the time-frame and the role of PPs

and the BLC?

I.. 1 With this in mind, it is possible to formulate

the area of inquiry and to identify the

empirical data from the village communities

which would help in formulating plans and

programmes for developing FPs into effective

orqanisations.

a) Post implementation, smooth and effective

maintenance and operations;

tb) identifying forms of participation by PPs

in pre—planning, planning and

implementation of the schemes, culminating

into take—over and management of the

scheme; and

(c) developing PPs and the hLC into catalyst

organisations which can generate and

17

accelerate developmental processes for the

region with active and major participation

by women.

CONCLUDING REMARKS

Thus this action—research on Pani Panchayats

has to cater to the short—term and long—term

objectives of the GSWSSBand the funding agency.

The Netherlands Government. There are many

possibilities for realising the full potential

of the water—supply project as a means for

de’elopmentai input. .~nd intervention. To what

e>tent has such operational and developmental

potential been realised where the scheme is

already implemented” The findings and

observations to this question can also be

incorporated as an in—built socio—economi.c

component of the water—supply schemes that are

at pre—planning and execution stage.

18

Appendix I

Fodder Security Systes - Susaary March 1990 to June 1990

Sr. Tue period Village Quantity o~ Transportation Assistance by Total cost No. o~cattleFodder cost SEWA ~upporte~procured

I. 14-3-1990 to lotiya1990

42,300 stacks Ps. 1,250

I

3.

6okhantar 27,300 stacks Ps. 810

6ulabp’ira 21 bass -

Ps. 7,650

Ps. 1,490

21,150

4,410

Ps. 14,000 44,000 241

Apperdi~ 2

Fodder Security S~stes - Vu1la~e-wise, Nonthsise Sussary

Sr. fl.~nth Quantity of Transport Support fros Total cost No. of cattlet~. Fodder cost S(WA of Fodder supported

procured

~otu,a lRadharupurl

1. March 5,000 stacks Ps. 350 - Ps. 5,000 3022. April 13,000 sticks ks. 900 Ps. 3,000 Ps. 16,000 287~ Na, 9,300 stacks - Ps. 1,000 Ps. 14,000 270

4. June 15,000 stacks - Ps. 4,000 Ps. 10,000 250

~uIlaqe 6okhantar I5aitthalpur)

I. N.rch 5,000 stacks Ps. 300 - Ps. 5,000 1702. April 5,000 sticks ~s. 510 - Ps. 5,000 1703. Nay 8,300 stacks - Ps. 4,500 Ps. 11,750 165

4. June 10,000 stacks - Rs. 3,150 Ps. 15,000 150

Lcti~a td~a~~r)

Date No. of 6rass Unit cost Total cost No. of cattle supportedstacks procured Iper 100

stacks)

1. ~.4.90 5950 Rs. 150 Ps. 8,925 2S~2. l4.4.~0 5850 Ps. ISO Ps. 8,775 2063. 21.4.90 4400 Ps. 150 Ps. 6,500 269

4. Iu.5.90 6450 Ps. 150 R~. 9,600 2485. 26.5.90 7850 Ps. ISO Ps. Il,325 214c. 27.â.9~ 603) Ps. 200 Ps. 12,000 190

CHAPTER 2

C(JMMUNITY PARTICIPATIONz IDENTIFICATION OF ISSUES

I Ii i~ i , I I I I~I hi 11)1)1= TI till I Li hi t~ I ~iI’J

2.1 The first joint visit of the FPI and SEWA teams

to the scheme area tool place in the middle of

I98Es, when the region and the entire Gujarat

~ t t ~ were ind~r the severe gri p of a four th

con CLtt~ve ~ of dro~~qht. The visit was

org~~nised in cori~ultation with the local

e~.ecutive engineer of GSWSSFj. For developing a

~0C~C ecor,o.Tic d~va1o~jine,,1 programme, it wa~

neessary to have a feel of how the village

communities were facing the crisis situation.

We could visit seven villages located in the

twin talul’as of Radhanpur and Santhalpur.

Jetalpur, Sinad, Nani—Pipli and I~olivada in

f’~ac1hanpur Talitl-aa and Sidhada, Par and Madhutra

in Santhalpur Ta1uk~a. The observations for each

‘..illage are as follows:

J ETALPIJF<

A small villaqe community with a population of

5,’r’.’ived on Government organised drought

relief won.. Rainfed agriculture having

totally failed, they had no alternative

19

~our~e o,• earning a livelihood. ~Ø persons

~i ~,r tIit~ ~i I I.~cj~h~d already migrated to other

~l large nurnher of LâttlC had died due

to the drought. l5ø-2~O surviving heads

~t c~1tle were ta~en care of in a

~~overnment—supported cattle—camp, managed by the

~tharisali Tr~.t — charitable organisaion. Some

or the households earn their livelihood from

~.~peu~tirig ambar char~has cfour spindle,

h~rici—operated spinning wheels) also provided by

~to Lihansali IrList. Ihe people were willing

to learn new skills.

Fhe Fani Fanchayat was rated to be working well,

arid the ~-iater supply had been maintained

reasciriably well

SlNAL~

ibis agriculture—based rural community with a

population of 750, just survived on relief work.

175 cattleheads were sustained by the

cattle—camp. The village had a primary school

and a post—office.

GSWSSb rated the functioning of Pani Panchayat

as average.

I—il Li

~,e 95~—~tzoiig ~i11..qe ~nrviv~d on relief worL.

~ cattle-hee~ds were looked after at the

Lattle—carrup organised by the Bhansali Trust.

~.J1J~IIt~ ii~tI~iL.J1U~ U$J&:1 ~t~L~,(J ,~,iitjar (h..1r I Ii..as tinder

reJiet op~r~itioru. ihe people are willing to

learn and develop craft--worL.

The Pani Panchayat was working effectively. The

spill—over was utilised tar maintaining a small

school garden. [he original source of water, a

village well, was in disuse.

OLIWADA

2.9 A large size village community with a

population of l,8~ø had a primary school, a

post—of+ice and a village dispensary. The only

source of income to the majority of the

population was relief work, which was mainiy

buildir,.~ roads and water tanks and ~home—based

Ambar Charlhas. The ~øø-4øø livestock were in a

cattle—camp -

The Pani panchayat was highly effective. The Fl

had imposed a fine of Rs.l~ on those wasting

water. The fine collection was for raising the

garden in the school

E~I DH~DA

~•1

:..ii ?~ T.~OO—stror~g village had a predominantly

muslim population. Th~ scarcity relief work and

the cattle-camp helped them to sustain the

population and their cattleheads. The village

ras a -fairly good craft—base that their women

seemed keen to develop. A dairy coopertive with

its own building was defunct due to the drought

and ceasing of milk collection by the District

Li a i r y.

2.12 The working of the Pani F’anchayat was considered

average.

PAR -

2.l~ With a primary school, a post—office and a

dispensary, the village is predominated by the

Darbar community, whose women confine themselves

within their homes. Even water is fetched by

their men—foil’. For low and middle income

qroups, the only source of income was relief

work. 300—400 heads of cattle were in the

cattle-camp. The Darbar women have high—skill

craft—base which they were wi-lung to develop.

.et they opcratcd Ambar Charl has at their homes.

2.14 The Pani Panchayat was working well and had a

female line-person, who looked after the local

i I I ...~ I I a t i Ciii

MA L~HUT k A

Located on the Loroer cr the Rarin of Futch. the

village ha5 a population of 1,600. The only

source of income was relief work. It had

large—sized Government hospital and a

dispensary. A number of animals had died.

affecting their flow of income. The village had

a very strong and diverse craft—base which’ could

be developed as ~ major, alternative source of

income in normal and drought conditions.

me F’ani Fancliayat w~ ra1i~d to be an average

one.

The impact of the fourth consecutive year of

drought was so severe and serious and the

communities were so preoccupied with the

struggle for survival that it looked difficult

to carry out any survey or study in these

villages. They needed immediate work and/or

relief; while we were working for developing a

strategy for short—term and long—term

development 0+ the region. However, the

t-ield-visit offered insights which would help to

dE~vRIop strategies for short term and long term

~ ~ Opii~t~ L

2.3

Some of the insights may be summarized as2. l~

tot lows:

~l) ihe rich craft—base amongst the women which

a non—water—based, labour—inten5ive

activity could be developed to the ma,<imum

extent. It could also provide income

immediately and on a sustainable basis.

It would reduce their dependence an digging

and road building, and sustain them thr~ough

craft—worl

(2) Livestock breeding and dairying is another

alternative source of income-which could be

fully developed through (a) restarting

milk-collection by the District Dairy (b)

reviving cooperatives Cc) replenishing the

- lass of livestock due to drought and Cd)

developing a fodder security system

tt-trough the primary milk cooperatives.

(3) Augmenting the supply and streamlining the

distribution of water, which is a

scarce—commodity, so that the overall

iJeve:opnit~1L c~ tt.~ arid region can be

accelerated.

2.19 The detailed elucidation of this strategy has

beers worked out and has been a part of the

24

-acord of the Peview rlission GUJ—19. The same

has been attached as Appendix 2.1 -for ready

reference.

m }ñu~ID 0-f VISITS; FOCUS ON FANI F~ANCH~YAT

the second round of the +i~ld visit was

or 1, i- arid 14th of September, 1988,

atter the project was formally launched on

~epternber 1. 1-~8d. In consultation with the

Chief E>.ecutive Engineers, 10 village

LoIninunlt.ies were identified on the basis of

their si:e, population structure, and census

d~ta. The functionaries of GSWSSE4 also

supported us in selecting on the basis a-f their

perception of the won ing of Pani Panchayats as

good, average or inactive.

2.21 This visit was after a very good monsoon which

had a timely outset in June and the people were

eagerly awaiting the last spell of rain a-f the

season. With a fair bad-ground of the first

visit and the spadewori. done with the Government

and semi—Government agencies, we could carry out

a more meaningful and productive dialogue with

the village women, women members of Pani

Panchayat, the Sarpanch, and other members of

25

tne FP. There was a two—fold outcome of the

m~et ings.

~ rirect~cns wore identified for the

I ~ii IL. i~ ij 0f worntn reX at~d income—generating

activitites, arid

tb) problems and Issues in making the Pani

Far~chayat an effective social organisation

were also identified. This would release

and accelerate developmental processe5 in

the future.

The outcome pertaining to (a) is given in

appendi>~ 2.1 However, the outcome pertaining

to PP are given in the paragraphs that follow.

GF~U1iP IIEETINGS OF PANI FANCHAYAT MEM~sERS

In the third round of field visits, two meetings

of the members of PP were held. A meeting of

the women members of the PP of V~rahi

branch—line, which ,.as held on 28 October, 16 PF’

were represented.

2.24 In the second meeting on 19th October, 1990,

Sarpanchs of 10 gram parichayats attended. Ihe

outcome of both these meetings is summarised as

fo lows

5E111.aU UP OF PANT PANCHAYATS

26

1) The GSWSSE3 has prepared guidelines -for

- setting up a Fani Panchayat (FP) in all

the villages linked with the Regional Water

Supply Scheme.

.2) This has been done as post—implementation

e~~erc i

3 Tne PF is an informal committee of the Gram

Panchayat (GP) which is a statutory,

elective body.

(4) The members of the PP are all nominated——

the Sarpanch being its president. Each PP

has two female members. The lineman and

employee of the GSWSSB becomes an

ex—officio member of the PP.

(5) The PP comes into existence out of the

resolution of the Gram Panchayat.

(6) The branch—line committee is composed of

all the Sarpanchs of the linked villages

with the E~nanch—I.ine Engineer as its

Chairman.

The process of forming a PP has been initiated

for the last three years and is about to be

completed. The entire region has been passing

through four consecutive years a-f drought. As a

result, - the rural communities were fully

pre--occupied with the grim struggle for

-

4_I

~tr~i~a1. The functionaries of the GSWSS~were

also overwhelmed by the crying need and demand

,~,p- w~ter. As a re~ult, the supportive work

nt~ce~sary for making the PP operative and

effective had not received high priority.

2.27 The GSWSSB and the local functionaries have

defined a role for the PP which serves as a

criteria for judging the performance~, of a PP.

The role perception is delineated here.

F~OLE FERCEPTZON OF PPs

The functionaries judge the performance of the

PP on the basis of the level of cooperation of

the villagers, the criteria being:

(1) Minimum or zero waste of Water

(spill-over).

(2) Utilisation of spill—over water for

socially useful purposes like a cultivating

a school garden, vegetable growing or

nursery—raising.

(3) Controlling the use of piped water fo,

other purposes like bathing, washing

clothes, bathing animals etc.

(Traditionally the village well water or

20

t~ri~ water or burewell water is used for

multiple purposes).

4) Minimum or no damage to local facilities

like water taps, valves, stand—pasts,

cisterns and pipelines.

(5) Clean and hygienic conditions around the

drink iiiy water supply facilities.

(o) Stopping and controlling the pilferage of

water by’ breaking pipelines.

2.29 The question is then how is this role performed,

and the functions discharged? What physical,

f&nancial and moral resources are required to

support t~ae role?

2. ~ What is the participation, or atleast

interaction, of the rural communities and the

Gram Panchayat in defining their role’ Having

defined the role and functions, what supportive

actions and activities should the GSWSSB

uruJertake~ -

How can the village communities be prepared to

play the e>:pected role? Is any community won

required to make the PP e+fective~

CAUSES OF STFAINED COMMUNITY RELATIONS

E’t~f(jrC ansr~er-1ng these questions, it is

necessary to e>~amine another dimension of the

t~iirc1se. Oe-fore setting up the PP, the GSWSSB

7°

ra~. gone through the process of planning and

iiiipIt~menting the scheme. The praces~, though

rcjLle and well—intended must ha’~.. given rise to

a spectrum of responses ranging from creative

cooperation to outright confrontation, and many

shad&s in between. It would be useful to

concentrate on real or perceived causes which

make a community non—cooperative and the PP

inactive or ine-fs-ective. Some of the identified

causes are listed below:

(1) Non—inclusion of a village in the original

scheme.

(2) Oy—passinq the local community in setting

up local facilities like stand—posts.

~) Size and volume of the local facility

i.e. number of stand—posts.

(4) Location of the local facility and demand

for change or addition by the village.

~Z) rraqL~nt break—downs and interruptions in

timely and regular supply.

~o) Time taken in restoring supply.

(7) Tampering and damaging the main pipeline

resulting into prolonged disruption of the

water—supply.

~8) Delay in the e~-~ecution of the scheme

re~’,1tinn in imoattence and frustration.

‘9) Political group rivalry at village level,

30

ir1ter-~vi1lage l.~t-l and taluI.a level,

finding e~:pression through genuine and

~r-ceived co~nplair~ts and grievances

pertaining to tne water—supply. Water

being a universal basic necessity, provokes

an immediate emotional response from

people.

I~F~AtICH —L I NE COMII 1 TTEES

The Branch-Line Committee (BEC) is composed ot

all the Sarpanches of the villages linked to a

branch pipeline. The Branch. level Junior

Engineer is its Chairman.

The r~mbership of the e>~—officio. The rol~s and

furittions of the BLC are not adequately but as

its name suggests, the BLC may take up

branch—level issues’. THe meaning and

connotation of branch—level issues can be and

should be defined from the point of view of (a)

tht~ functonaries of the GSWSSE4 and (b) the

Sarpanches, who represent village communities.

CAUSES FOR THE INEFFECTIVENESS OF BLC

From the discussion with the functionaries of

the Board, some important issues pertaining to

the successful and effective working of the OLC

were identified: -

(a) No suitable bus services and bus schedules

~~1

~re available to atti~nd the meetings held

at the branch--line installations.

~t~1 io att~iid the iieetiy, Lhe 5arpanches spend

all travel and other costs out of their own

pocket, which they teel is a disincentive.

(c) When the branch—lines are working

reasonably well and the complaints are

redresse~J in reasonable time, the

Sarpancties find attending such meetings is

tininteresting and purposeless.

~d) In case of any local—level problems, a

member of the E4LC goes to his complaint.

There is usually a prompt response from the

functionaries, so the meeting becomes

unnecessary and irrelevant. There is hardly

any business to be transacted for the

(~embers of the E~LC.

CONTRADiCTION IN ROLE PERCEPTION

(e) W1t11 1~rowiny operational experience, the

~r~ainten~nce and repair of the scheme will

also improve. The time—lag between the

re~c,rdir~g of ~ complaint and the removal of

the causes will be substantially reduced.

a result, the scheme will function more

i~fuicient1y. The E~LC meetings and even

local—level PP meetings will be lee

liecessary arid relevant. The Sarpanche~

i-eel that when the scheme is working

normally, why should we attend meetings?

The functionaries too found the meetings

unnecessary and redundant. Even if

convinced, there would be very poor or thin

attendance.

,IREAS OF ~iCT ION

Therefore, the question is: How to make the

meetings of the BLC and the PP interesting,

relevant, educative and an occasion for

~~ctivising the 1F~

ELECEOhAL CHANGES ~ND THE FAN1 F-ANCHAYAT

As stated earlier, the Gram Panchayat and the

Sarpanch are elected for a specific time period.

They therefore are subject to change. Every

Gram Panchayat also has two women members, who

~ ISO LIi~~I~O

lIi~ crucial issue is, when the OP and

~a..ii I. ~ ~ I y Lhi: ~ jdIlchus ch~nçju, should t’I,u

I I ~ I ~JL iii ~ L t ‘ • I ~ I low ,- WI iu w i 1 1 iiu I.

ri~coristitut.iuri On what basis?

If this is not done, what is the future of this

nominated, informal body”

L~n it be made an elective body, coterminus with

tre uroifl Panchay.~i’ Will that make it more

effective~ Would it have more authority ana

po~-.er to act if it is made a mare

representeti-ve bocly’

2.4~ These issues need to be discussed and the

answers can be found from the empirical data

collected at the field level.

F~EL~EFINEDFOLE OF THE PP AND THE BLC

:.~4l If the PP is to develop as a social organisation

which accelerate the processes and forces of

aevelui.iiiuent ~ith~r. the village communities and

across the region delineated by the Regional

Water Supply Scheme, is it not neessary and even

inevitable to~redefine the role and functions of

the F-P arid the BLC’ Should we not add the

tol Lowing elements in the redefined role? Would

.t n~- Inrrf~se community participation in the

~lj!L~I~ t of water ~uppl y and support the

economic development process’~

~a) Several water uses, cost of each use and

awareness about preservation and

(IeveIc)puee;t of all types of water

34

resources

~b) WdtCr ~LIpply for agricultural and

industrial uses, if any.

c) Ecological regeneration of the region,

which also brings about economic

r-s~.rjpner~t~on within a reasonable time—span,

and over a long term.

ci) Waler—conserving and water augmenting

employment and income--generating activities.

(ei ZerO--waLercOnSL(fllptiofl industrial and

artisan activities.

~ F) Wholesome drini-.ing—water supply and its

impact on the health level of women and

c hi 1 dren.

.q) Informative’, educative and motivational

won for water—related activities and

programmes.

II ICI 115 ION

Ufese are some of the issues and. problem areas

that we have been able to identify through the

reid visits and series of meetings with the

women—members of the PP, the Sarpanches of the

-.‘il Layes anti f.,nction.~iries of the GSWSSB. This

is the contribution from the field—work done at

lh~t yrassroot level towards identifying problem

wriich should be tackled to make the PP and

the hLC, effective social organisati.ons in

community participation, in managing regional

water supply schemes and in generating processes

ror regional development with women in focus.

We will now move towards the findings of the

community—based water—related e>~posure’

programme.

Appendix: 2.1

~uIL I I -LCONOII IC COMPONENTS

AS INF-LJT FOR REGIONAL SuSTAINABLE DEVELOPMENT

~ANIHAL~UI~ RURAL DRINF~LNGWATER SUPPLY SCHEME

PROF. RAMESH M. BHATT

I. The supply of drinking water for the ruralcoirimLinities and their cattle in two talukas ofE~ar-~asiarithaDistrict of Gujarat State is a basicaction towards their survival and sustenance.It has also a major rehabilitative impact,preventing migration during drought years ande~en in a normal year.

Large—scale seasonal migration takes place inthe roqion c~en duririy uiurii~al years out assumesmassive prcipurtions during drought years.

1h~ ~eason~.l migration leads to the disruptionor human resources and development activitieslile education, health, child care and~ill—forrnation. It also ‘eads to the~Jeyr-adation of existing physical resources like~oii, water and vegetation.

4. Fo set in motion sustained economic andetological regenerative activities, the ruralco(rr,LrII.taes will have to be rehabilitated

•1’ L_i( c.~ki

~ dr tril irsq w~aler ~or their cattle round theyaar, and

~b. assured round—the—year supply of fodder fortheir cattle.

hutirid--th~-year supply of fodder and particularlyduring the Lean period from January to June iscr tica 1..

FODDER SECURITY SYSTEM

it is proposed to develop a Fodder Securitybystem in Banaskantha. With the rich experienceof managing cattle camps on a large scale invarious p~rts of the Gujarat State, it is nowpossible.

c~~) to identify locations from where fodder canL.. rcgulari’1 ~upp1ied,

b) to develop a scheme for supplying fodder toindividual households.

7. Fur this purpose, an action—plan foria~ procuring,iD’ storing, and‘c’ distributioni at fodder will have to be

- deveLoped.

u. a-. scheme for con~ructing silos can also beformulated and can be implemented through

ia) individual households(-U) milk cooperatives andic) voluntary ~ger.cies, who have done

commendable work in runr~ing cattle—camps.

,1~snred fodder supply at low cost should bepossible in a year with normal monsoons in the

;; ~ ir~ -.i~ (-.4 ~

r~n Mdequate buffer ~toc~ of fodder may also be~l~cJ to moot with the recurrent drought

~ i tuat ion in E’~uiasi ~ ~tia.

ii. 1ht~ creation of a Fodder Security System isli~eIy to have a very posit~ive impact on

~co regenerative activities and programmes like:

ca) Afforestationb) Reforestation

ic) Social forestry

id) Spreading the green cover through treeplanting campaigns.

~1O~-GAS PLANT - COMPOSTPITS

Dung will be ~vailable locally for setting up

(a) blo—gas plants on an individual basis,which would provide an alternative energysource pius soil—enriching organic manure.

(b) the dung would be available for feedingcompost pits which would supply enrichedorganic inailure for the reqeneration of thesoil and the eco—system.

13. As is done with tribal groups, a scheme withattr.*ctive terms to popularise the compost pitmay be introduced.

14. Cattle—breeders who own a large number of cattleand who migrate seasonally, may be persuadedthrough extention work to stay at thecattle—camps. Ibis is a difficult exercise, but~r, succececi with determined efforts to~tabi1i~~ theari.

REI1Ai3ILITATIOU FROJECT

The rehabilitation scheme will have to betuinaulated after a detailed study of thecircumstances under which the cattle—breedersiiyrate, and of any alternatives~ that the schemeL~.fl otter. ih~ cost to stabilise them has vital

.~.i I --berief it .impl ications.

i-~ Ic~i avaiiaLiii~ty and u~e ~f t~rrj~nicIai~.Iiure for Lhe regeneration of soil;

iL~ developing bia—gas plants as a source of- a1tern~Live energy;

(L prot~ctiun of worne,i and children throughe,:tention of health, child—care andeducational services, because they are thewur~L ‘.IL.ti,1IS Of migration;

(d) e~tention of cattle—care services forimproving the quality of live—stock.

1~. In brief, it will be a rehabilitation of thecattle—breeders in Sanakskantl-ia, with theinvolvement of voluntary agencies in acooperative structure.

USE OF SOLAR ENERGY

17. Abundant solar energy is available in theregion. Adequate technology is available withinthe country aj.ii abroad to set up solar plants togenerate electricity. DHEL CDharat HeavyElectrical~ Ltd) is setting up such a similarplant in Andhra Pradesh. The Government of

India has approved a proposal for setting up aRs.112 crores solar plant in the desert region

ot Rajasthan.

A systematic study should be urgently carriedout for e>isting energy requirements inDariaslantha, particularly of rural communities;e~isting sources of energy; future needs -forenergy; and a plan to develop local sources ofenergy. This would lead to in a line localskill formation, employment generation, andregeneration of the eco—system by conservingsoil and protecting the green cover.

19. The availability of solar energy will alsopromote the setting up of cottage andsmall—scale industries in the region,~jt~i.era1inq incOarie and employment rounçi theyt~t. ~~nd uiut~t important of all, in the leahperiod.

Esati~s~’antha is seriously threatened with theprocess of desertification, which requires both

(a) preventive measures and~ r ecl~ui~Licana (eco—regenerative) measures.

Rajasthan has set up a commissionerate fordesert development. The Government of Guiarat~hou1d also set up a Desert DevelopmentAuthority headed by a civil servant ofCommissioners rank. Its role will be tocoordinate and synchronise the activities andprogrammes of the central and state government~sdepartments and other developmental agencies.

RESEARCH INSTITUTE

The Dantiwada Campus of the Gujarat AgriculturalUiiiversity slIcJLtlU be deveLoped as an arid and~Cmi -arid zone research, training and e>ztentionc~r ten.

PUE’LIC EMPLOYMENT

23. Th~ desert prevention and reclamation programmeshould be so organised as to generate a massivepublic employment system which can initiallysustain local rural communities and graduallyina~.e them economically viable households.

WATER RESOURCEDEVELOPMENT

24. The scheme for popularising drip irrigationamongst farmers will have to be developed.

25. So also schemes for conserving and storing ofwater at household level and at village level.

:5. Instead of surface flow channels, an undergroundpipe system fur irrigation will have to bepopularised with adequate incentives in terms ofsubsidy and soft loans.

GEO—CLI MATIC FOCUS

27. So far, general schemes are developed andimplemented all over the state. What isproposed here is the development of policies,programmes and schemes, which satisfies the~,t~iiL •;a~J~ ~f the local community in açjeo--climatic region. In this case, it is thedesert or semi—arid zone reclamation andJ~.~clnpment flCCLi~.

CHAPTER 3

E~F-OStJRE TO WATER-RELATED TECHNOLOGIES

a follow-up to field-visits and group

discus~ions with the members of the PP and the

hLC, it was decided to take up a motivational

prcn~ramme for members of the PP to improve

thekr participation and increase the

~ffectiveness of the PP. An ‘exposure’

programme was designed to achieve multiple

~bJ ec tives.

Io raise an awareness about water and itsmost economic use through water—relatedccc nno log ies.

~.b) To motivate them to accept water—augmentingtechnologies.

(C) To motivate them to revive the primary milkcooperatives which were defunct.

~d) To motivate them towards accepting andimplementing eca—regenerating programmeslike nurseries, and tree—plantation atindividual, group and village levels.

3.2 To realise these objectives, it was decided to

organic, a two—day programme + or members of the

PP to visit*

(a) The Amul Dairy at Anand and one of it~successful village—level primary milkcooperatives,

(b) a mode’ tree—growers’ cooperative nearAnand ,

(c) the demonstration center of IndianPetro-Chemicals Ltd. (IPCL) at Baroda,

34

where drip irrigation, pond lining,mulchirigand green—housing techniques arede;~on~tr at~J.

The participating PP members were to travel by

ous a U~z~ cf 4~ hm~t~n~—way. It was

originally planned that 450 PP members and other

community leaders representing 45 villages

should attend. The 10 bus—trip programme was

organised between April and June when the

participants were comparatively free from

agricultural and off—farm activities.

3.4 However, it was possible to organise only 7 such

bus trips, covering 35 -villages and 237

participants including 175 men and 51 women.

3.5 The, participation in the exposure programme may

be statistically summarised as followsu

(1) Total participating village communities 37

(2) Participating village communities havingaPP 37

(3) Number of Sarpanches as President of aPP, who Joined the programme 13

(4) Number of male members of PPs 105

(5) Number of female members of PPs 34

(6) Numb~r of other male communityleaders who participated 70

(7) Number of other female community

leaders who particip~~ted 17

• ~bi Total number of PP members who- participated 152

IhoLIgh ~ur goal was to include only the PP

rnecnoers, we had to include other community

leaders because some of the PP members were not

aware of their memberships and even if aware,

were not sure of what they would gain out of the

programme. - -

3.7 The number of women participants also remained

very low due to social taboos. When a woman

could not come alone, other members of hers.

family were encouraged to accompany her. Many

h~d domestic responsiblities from which they

could not be relieved. As a result, we included

several non—members who showed interest and who

could act as future support structures in the

villages.

RATING OF PARTICIPANTS

3.8 During the programme, our field—workers were

asked to monitor the interest and involvement of

the participants and rate them accordingly. The

results are recorded below:

(1) Total participating PP members 152

36

~) £ho~ed keen interest 10 (6.67.)

T) Showed ordinary interest 15 (9.97.)

~-I Who were eager to know something 57(37.5X)

(~) Who took it as an outing 70(46.137.)

This gradation is done by our field—workers, and

an element of subjectivity cannot be ruled out.

However, it does reflect the general attitude of

the PP members towards the programme and its

significance to their role in the PP. ‘It was

realised that a lot needed to be done to

motiviate even t~0/. of the membwr5 to be

effective.

3.10 The programme had several objectives and we have

recorded the impact of the programme in

realising them.

MILK COOPERATIVES

3.11 flut of the 3~ village communities which

participated, the primary milk cooperativee of

9 villages, including 4 in Radhanpur and’5 in

Santhalpur talula, were active. 22 villages

had defunct milk cooperatives, and 4 villages

were willing to set up new cooperatives with

the support,of SEWA.

37

LEADERSHIP DEVELOPMENTAMONGSTWOMEN

3.12 With the activisation of defunct cooperatives

and the launching of new e~c1usively womefls

cooperatives, the income—flow and womens

participation can increase the number of

cooperatives and the leadership developed

therein can also help in making the PP

tffective. In fart, milk cooperatives can play

a twor--fold role. It can accelerate the womens

income—generating activities and the experience

of running a milk cooperative can promote the

effective working of PPs. Further work on the

available data—base and ecperience to realise

this objective is necessary. For detailed

analysis of the issues of the milk cooperatives

in an arid zone, a report has been published

under the title of Milk Producers of Arid

Zone* Strategy For Survival

~.13 The impact of the eMposure programme in the

field of dairying is available in the progress

roport~ of SEWA. Measuring undereral criteria,

the performance in this area has been positive,

encouraging and on the threshold of a mraior.

break-through.

WATER CONSERVING & SAVING TECHNOLOGIES

38

The immediate impact of the exposure programme

water—related programme was assessed and

recorded by the programme organisers. It can be

summarised as follows;

Out’ of 35 village communities, 21 showed interest in

implementing water—related technologies.

1. Villages willing to implement 6pond—line technologies

2. Villages willing to try plasticsheet—mulchLng in the next monsoon 8season

3. Participating members willingto try out drip—irrigation on their 40own farms

3.14 1The reasons assigned for not accepting highly

water—saving drip—irrigation were ~

(aè It seemed economically not viable

(b) Many did not have their own bore—wells

<c.) Lacled support and guidance after

acceptance.

(d) Inadequate land holding

(e) Non—availability of funds to install the

system (costing Rs.10,000 to 15,000)

~.j, ~an~skantha district do.~ not provide

~hcjdv for installing drip—irrigation,

although other districts do.

39

To ccncret~se the gains of the exposure

programme, the fol lowing actions are required.

(a)’ Drip—irrigation and mulching can be taken

up on an individual farmer basis. The

water—saving may lead to either expansion

of water—use in the village or taking a

second crop. In both cases, employment

and income—levels will rise. However,

further action for demonstration,

acceptance and assurance for

post—acceptance repair, maintenance

service, will be’necessary.

~u) Fur purici—lining, ~ ponds arid tanks

being the common property of the village),

the PP and GP will have to be involyed in

(i) planning and designing, (ii)

implementing the scheme, and (iii) keeping

control over the most gainful and

productive use, of water. A lot of

extention work with the. community is a

basic pre—condition for its success. The

FF co~ pla, ~ ~ff~ctiv~ role by

augmenting the water supply of the

vilIai~e for domestic, eco—regenerative

and agricultural uses. It may also remove

the strain on the ‘supply of

40

can work as andrini’:ing—water, and

alternative system.

ECtJ—REGENERATION

The exposure programme focused on saving and

augmenting the water supply, which can be

utilised for eco—regenerative activities like

nursery—raising, plantation of fodder trees,

fodder farming and agriculture supportive

of human—beings and livestock. Visit to a

model tree—growers cooperative in Anand

convinced the participants that similar

tree—growers cooperatives can and should be

raised in E%anaskantha.

17 During the implementation of the exposure

programme, from January to June 1989, SEW~

un~ertoc,k the raising of 1,12,000 saplings in 7

villages. 35 landless, scheduled—caste women

were provided with a regular weekly income

during the programme. The following year, from

January to June 1990, about 100 women raised 20

L~t~ti bapl)nqs and dEipendlng on their survival

rote, cacti woman worker will earn around hs. I

400~ to Rs. 5~00. What is suggested is that

well planned, programmed, eco—regeneration is

likely to do well in this arid area. The

operational details are available in seperate

41

half-yearly reports of SEWA. The individual

activity reports are being published separately.

Motivation, through exposure, did make some

positive impact and it has accelerated several

developmental activities. However, in preparing

and implementing the exposure programme, we came

.~cross the following issues.

The cost of travelling and meals was shared by

IPCL, AMUL, SEWA and FPI. It did not burden the

PP members with any e<tra cost.

(1) Why then were the PP members unwilling

join the programme”

(2) Why were even the Sarpanches not keen

participate’?

(3) Why was there an

membership in the

nominated members

membership?

~.4) Why a suostantial number

participating members not take interest

the programme’

(5) Why was the women-members’ participation

1 ow’7

(6) Did the selection of the nominees to the PP

have anything to do with this situation?

(7) As PPs were at the nomination and formation

3.18

to

to

uncertainty regarding

PP? Why did even the

not know about their

LIT

in

so

42

stage, would their induction, orientation

and involvement have to be develbped

through several other inputs”

(8) 1+ so, what are those inputs? Who would

provide them? How would they be delivered?

To answer these questions, we will have to move

forward to the analysis of the field—data

collected from the PP members and the lineman.

43

CHAPTER 4

PANT PANCHAVAT : LEGAL FRAMEWORK

Farii Ponchayats (PP)1 have been set up through a

~irip1e resolution of the Gram Panchayats (GP). For

pr~cLic~1 and legal purposes, the PP is a ‘Committee of

th~ GF; the Sarpanch of the GP is also the Chairman of

tt~ El. The GF’ is legally empowered to appoint such

s~cia1 purpose committees and assign specific duties,

re,c~risjL~i1ities and powers. However, the GP can assign

these pQ~ers, which are devolved upon it under the law.

iror~for-e, it will be necessary to understand the place

~nJ rQle of the GP in the entire system of devolution of

(:OL-Jeri which is popularly known as ‘Panchayat Raj

PANCI-IAYAT RAJ SYSTEM

irie three—tier F’anchayat Raj system -for

I H’t~orI ~irid decentrajisatjon of power came into

j:t,:eiic~’ through THE Gujarat Panchayat Act of 19ó1.

JJ~i the Act, LQ District Panchayats, 182 Taluka

~ 131 Nagar Panchayats (towns with populations

bt~~en 10,000 to 25,000) and 13,059 Gram Panchayats

~l~1vt’ been constituted. They have been operating for the

~s1 :0 years. The Panchayat system is supported by 315

c:Ias~-1 officers, 2,332 class—Il officers, 1,65,267

clas5--11 I functionaries and 20,558 class—TV workers.

i~nd~ th~ F’ay~t R~, system, thc Gram Panchayat is

44

the village—level, democratically-elected political ana

~dn i • i s t rat ive un 1 t.

SPECIAL REPRESENTATION

The Sarpanch and other members are popularly

~l~L:teU For a period of five years. The total number of

members of the OP are determined on the basis of the

village population. Each OP has to have two women’s

rt~.ir~sentatives, and atleast one member from the

~sc:heduled class and scheduled tribe communities. Their

r~pr-esentation depends upon the size of their

population.

4.4 Ire OP has been assigned several •duti.es and

r~-~~ç~onstbilitie8, and powers to mobilise resources to

~-~‘‘-‘e t-h~m. The OP ran also appoint a special

rc,,n~r,i tt~e to supervise, control and regulate specific

~ However, it. is obligatory for every OP and

l~l~ a Panchayat to appoint a ‘Social Justice Committee’

t~ prctect the legitimate interests of scheduled caste

and ~ctieduled tribe communities.

It is in exercising these powers to appoint a

committee arid to assign it the powers and

responsibilities, that the Pana. Panchayat, is

consti tuted.

4.ó Therefore, to understand the effectiveness of

the work ing of the PP, it is necessary to understand,

45

(a, the duties and responsibilities assignea

Linder the statute to the GP and may further be

assigned to the PP;

~b) the power to collect tax or cess -for the

supply of water, and

(c) the power to appoint a committee and make

it functional.

STATUTORY PROVISIONS FOR THE SUPPLY OF WATER

4.7 Under the Section 88sf the Gujarat Panchayat

Act ot 1961, the GP has been assigned specific duties

for supplying water to the village. Wd record below,

the relevant sections

ti) Under Section 88 (l)(a) it is the duty of

iu~ Gi tc z~pp1y ~ ‘for domestic use and for

the live—stock.

~ Under Section 88 (l)(b) it is the duty of

the GP to construct and to clean tanks, wells

and drains.

~ Under Section b~ (1)(c) if the present

supply of water is inadequate and urihygienic,

creating a health—hazard to the population, to

procure proper arid adequate supply of water or

additional supply of water, for which it is

possible to cover reasonable costs.

(4) Under Section ee (2), the GP can control

and regulate the use of public bathing and

washing ‘places.

46

~5) ~Under Section 08 (ó)(c) it can promote and~

support co—operative organisation in the

economic and social area.----I

(.~) Under Section 00 (7)(4) the GP can arrange

for minor irrigation, contour—bunding and

proper distribution of water.

‘Note: This sub—section falls under the

sectoral head : Agriculture, Forests, Common

Land Development and Conservation).

4.G i~ evident from these statutory provisiDns

th~ Li~- L± has responsibilities and powers to maintain

.~r.j J.~~cp water—resources for drinking, domestic use,

t ~ ~nd e~’en for irrigation purposes.

POWER TO IMPOSE WATER CESS

For discharging the responsibilities assigned

iU i~~itr Sect~n UG, the GP can also impose tax for

the supply of water. The relevant sections are referred

below

~l) Under Section 170 (1)(0) the GP can impose

general water cess on all households in the

village.

~.2) Under Section 178 (1)(2) it can impose

special cess for supplying water through a

pLpCi me.

3) Even for the construction of water—works,

it can impose cess under Section 169, 172 and

47

I/

181.

~4) Fees can also be charged for using water

from public sources for non—domestic use.

(5) Fees can also be charged to livestock

owners if the OF’ has provided for a water-

trough.

The Gujarat Government has also

stipulated a detailed process of imposing water

cess and the minimum and maximum rates of cess.

Within the range of Rs. 5 to Rs. 50, the cess

is imposed on the basis of the value of the

house. IlLitments may pay Rs. 2 per annum.

6) Compensation may be claimed for any

damage done to the water tan,k or wells.

APPOINTMENT OF COMMITTEES

4.1(1 Under the original Act, it was obligatory to

.~ppn~nt three committees of the OP, namely, (1)

frroduction Committee, (2) Education Committee and (3)

Health and Public—works Committee. However, according

to an amendment made in 1966, the setting up of any

iciirittee is at the discretion of the OP. Under Section

~i1, th~ OP can appoint a committee for performing any of

the functions stipulated under Schedule—I.

4.11 The Committee so appointed will have members

from the elected members of the GP and other residents

48

ut ~ ~‘i1lage. Usually, the chairman ~f the OP is also

the chairman of the committee.

The committee will perform such functions and

duci~s, ~FIU ~<Cr-c15C such powers which are assigned to

it by the OP. The duration of the committee will also

btz~ dtrcided by the GP.

41: It is within this broad framework and in

~ ~t~rLLae of the powers of the (5P that the role and

kuI~t:r u~ Ihe Pani Panchayats and the Brarich—liç~e

I ciiULee~ should be understood and appreciated.

ih&~ branch—line Committee (BLC) consists of the

r1i~nLh of all the villages, served by a particular

branch-line of the regional scheme. The composition of

th~— [‘ranch—Line Committee will change with the fresh

election of the Sarpanches in the villages. The BLC is

~ ~-~tI-~ th~ OPs. Thus OP elections lead to a

crlarlcJe in the BLC as well.

4.l~ However, it should be noted here that the BLC

ras no statutory status nor any specifically assigned

functions or powers. It is more or less a consultative

hcciy and a sounding—board. It can certainly provide

‘~‘aluab1e local feedback from the popularly elected

village representative, and can possibly pass on the

messages to the village communities. It can also act as

an opinion—building mechanism for the effective

functioning of the Pani Panchayats. As a social

49

S

urganisation which can accelerate processes and forces

of socio—economic development, the BLC can also play a

self—regulatory role for its members, who are elected

leaders of the villages. We will make detailed

recommendations to realise the full potential of BLC

~it~r ~e examine the field data analysed in the

~o l 1 owing chapters.

LEGAL STATUS OF THE PP

Huwever, the statutory or legal status of the

~—ani Panchayats is much stronger and sounder. It is one

ut the committees of the OP constituted by the OP

through a resolution and the GP can assign specific

duties, responsibilities and powers. The GP and the PP

are adequately empowered to develop, construct, manage,

control, regulate and maintain the water resources of

the communities. It can also collect cess and fees for

supplying water for domestic u~e and for livestock.

4.17 The critical question is in drought—prone and

armd—~one areas, where wholesome piped water is supplied

through a regional water—supply scheme from a distant

source. How can the village communities get involved in

the management of such a scheme, and to what extent?;

and how may they be persuaded to contribute towards the

maintenance cost?

50

4.l~ When the GSWSSBdevelops a water—supply scheme

for a single village, it is planned, executed and handed

over to the village Panchayat on a turn—key basis.

PUBLIC TUBEWELLS

19 Another organisation o-f the Gujarat State, the

~3’jjarat ~Jater Fesources Development Board which develops

t~kbel.~ells, also hands over the management and

maintenance of the scheme and installation to the

iillage Panchayat. Several villages in the Santhalpur

Echeme area have such public tubewells which are

~dditional and alternative sources of water for domestic

The challenge faced by the GSWSSB and other

promotional and developmental agencies —— Governmental

and non—Governmental —— is three fold .

(1) Can the PP be developed into an •ff.ctiv.

organisation for proper management and

maintenance of local installations of the

regional water supply scheme? Can it also

raise some ‘contributjon towards its

maintenance c~stf~ and to what extent?

(2) Can the PP play an expanded role of

development and conservation of all water

resources of the village community, including

the regional water supply scheme? If yes, how?

To what extent?

51

Can the PP grow into a social

organisation, which can play a catalystic role

in the socio—economic development of the

vi.iiaye~ LolliTlurlity, a group of’ yillages or a

bomogenous region? How and to what extent?

4.1 It should be evident from the analysis that the

GE and the PP are statutorily, legally and

~iriuinistratively empowered to meet witn all tn~ LIsree

cJ~Ltericjes. They have also been empowered to mobilise

rjcc~iric1al resources for developing and maintaining water

re~ourceS

4.~ They are ~enab1ed~ and empowered~ by the law.

Ihe tssue is why are they unable to exercise it? beyond

legislation, what other supportive measures can be taken

to make them feel really empowered? Alternatively, what

~jround—l~ve~. conditions can be created to enable them to

play the expected rolc

4.23 It is evident that theu. rural communities,

through their own efforts and resources, cannot solve

the drinking water problem, either on a single—village

or a group—of—villages basis. The physical conditions

are already severely deteriorated, and threaten the very

existence of the village communities, leading to

migration and total dependency on state support under

drought relief programmes.

52

4.24 The Netherlands Governments financial,

technical, humanistic and developmental support prompted

the GSWSSB to plan and execute a viable regional water

supply scheme.

4.2~ It was a joint humanitarian intervention to

s~pply water in the village communities. It was also an

~~1c1e irtar.’entiori in the regional sense. It dici

ch~r~ge the physical and material conditions of the

;i11~ge and the region. There was also an element of

u ~ncy in the execution of the scheme.

4.2~ However, to what extent were the village

communities, motivated and prepared to accept such an

antervpntion~ To what extent could the design and

strategy of the ‘intervention’ identify, absorb and

promote needs) e.pectations and socio—cultural potential

of the communities in the region?

4.27 To answer these questions, we now proceed to

analyse data collected from the rural communities.

53

CHAPTER 5

STATUS, ROLE AND FUNCTIONING OF THE PANI PANCHAVATS

The exposure programme was a participatory

pro~ramne with the Pani—Panchayat members and other

1a~~J~nym~crbers of the village community. We wanted to

ir~ icrise the impact on the participants so that ‘they may

a~ supporters of water—related and other

(i~-t-i.4)I~~r1taL activities aid pruyr~uslTIes. For starting

arC sustaining income and employment—generating

~tiiities, it ~has been possible to transform heightened

T~t~vation into participation in several activities,

which has been reported separately by SEWA. Here, we

will concentrate our efforts on making the Pant

~-anchayat an effective social organisation. In the

earlier chapters, several issues have been raised as an

out—come of field—visits, group discussions and a

concrete motivational programme.

5.2 As a logical step towards further collection and

compilation of field data, we have gone through a survey

of the members of the Pani Panchayat and recorded their

,ie~-~s and opinions on the functioning of the Pani

Panchayat. The classification of Pani Panchayats have

been based on the opinions of the engineers of the

G5W~Sb. The Pant Panchayats were classified into three

types.

(I) Pani Panchayat working very wall(Good) (10)

54

(2) Pant Panchayat working average(Average) (10)

(3) Pant Panchayat ineffective ornon—cooperative (Inactive) (4)

(4) Pant Panchayat did not receivewater supply for a prolonged periodduring a year of normal monsoon(No supply) (6)

No~: The last category was added at a later

stage to know the views of the members on the

role—perception of the Pani Panchayat. They

were identified by us on the basis of our

information.

FhLIs a total of 30 PPs were covered under the

survey. A questionnaire was designed to know the PP

members socto—economic backgrounds and their views and

opinions about the working of the Pani—Panch~yat and how

to make it an effective organisation. The analysis and

findings are presented in the following paragraphs.

CONSTITUTION OF PAN! PANCHAYATS

(Table 5.1)

5.4 Some Pani Panchayat members, but mainly the

Sarpanches were interviewed, and asked how the Pani

Panchayat was constituted. Irrespective of the status

of the PP, it was evident that the GSWSSBnominated the

Pani Panchayet members in consultation with the S~rpanch

and community leaders.

55

1h~re was again unanimous opinion amongst the

~ ti~t after every election of the Gram Panchayat, the

I I ~ ~=I-,r~ia1d ~ r~o~itiv~ly r~rr~n~tituted.

1 ~t tu.-J (h~ r(~cc)flSt1tLtt1Ofl should tale place, three

~Jr ij~tions were made :

~a ~2 respcnses were for the nomination of

PP members in consultation with the Gram

Fanchayat.

~b) 17 responses were in favour of an

electoral process.

10 responses suggested that all the

members of the PP should be women. This

response was ~ common amongst efficiently—

working PF~s.

THE COMPOSITION OF PANI PANCHAVAT MEMBERS

~r~1e 3.2)

b�~rjder Ratio

It was a deliberate policy of the GSWS5E~ to

appoint atleast two women members in the PP, other

nerib~rs being the Sarpanch, male members and lineman.

Thi~ the womens ratio should be 33 per cent which is

&i~~r~ly reflected in all the PPs except the PPs at the

t~i 1—end Qf the line, who did not receive any water

~~iippl~ for a long time. These villages being remote,

~nd their relations with the PP being none too happy, it

t~s not been possible for the GSWSSB to ~.nsist on a 33

56

~m~r~le nominatinn- ihe stronci social taboos

--~t ~rn~-ç~ ~n such isolated and alienated villages

~ ~1so be responsible for under—representation.

AGE GROUPS

In the better performing and average PFs, there

is a balance between the younger and older age groups.

In the inactive PPs, there is a predominance of young

people and a loweç representation of elders, who

traditionally command respect in the rural community.

In no supply villages also, there is a good balance

L~i ~ younger and older age groups.

EDUCATION LEVEL

The Par-u Panchayats doing very well, have a

LJtt2racy level of 61 per cent, while illiterates are 39

pe.- cent. However, even in the ‘non—cooperative

category, the same proportion is recorded. Only in

‘average~ PPs, the literacy level is 46 per cent and the

rest are illiterate. In the tail—end no supply

JIL~LJL~S, the illiteracy rate is as high as 65 per cent.

In these remote and isolated villages, the general

~ducatton level is likely to be very low. Educated

membership is a contributary factor in the better

-iariagement of PPs. However, it is not a sufficient

condition for the effectiveness of the PPs. We w2.ll

to search for other contributary factors. The

educational level of the members can be good criteria

57

However, leadership qualities shouldr~• numiristion.

~ play a role

OCCUF’AT IONAL STRUCTURE

5.-i In all the three categories, 60 per cent of the

members are occupied in agriculture, 13 per cent to lB

per cent are linemen and 18 per cent to 27 per cent are

l~uI~zLIi doing domestic wor’l. Only in the good PPs other

L/LL.%patlons like teaching, religious services and labour

are represented.

In ‘no supply’ remote villages, those engaged

in ayriculture are only 48 per centj there is 15 per

cent representation of primary school teachers. Looking

to the illiteracy level, the GSWSSBseems to have, gone

in for selecting primary school teachers.

The occupational structure does not give any

cLear—cut indication regarding the selection of a member

tor nomination to a PP.

MEETING OF PAN! PANCHAVAT

(lable 5.4)

FREOLJENCY OF MEETINGS

5.10 One of the indicators of the effectiveness of ~

FP would be how -frequently it meets and how the minutes

~rc recorded.

Out of 31) PPs, 13 meet every month and 8 meet

58

t~r, quarter. The average FPs and ‘inactive PPs

numbering 6 out of 14, meet every quarter. However, the

cost significant point is that 9 Pani Panchayats,

ir1cludtng 3 ‘good’ PPs and 4 ‘no supply’ Pani Panchayats

riit~et ~s and when required. It also implies that they do

rot meet for a long time, since they do not have ar~

agenda to be transacted due to the efficient functioning

OT the s~homo or due to the non—supply of water

thereby making the Pani Panchayats irrelevant and

func tion less.

RECORD-KEEPING

5.11 Apart from the quality of records, 23 Pani

F’anchayats do keep records and 7 don’t. Even two ‘good’

Fani Panchayets do not Leep records. Lack of record—

~eeping is highest in the ‘no supply’ villages, which is

~~iiiite understandable.

If the Pani Panchayat is a committee of the

Gram Fanchayat, the duty of record keeping could fall on

tt1e Secretary of the Gram Panchayat, who is in

po~ession of all records of the Gram Panchayat. In the

La~eot FPs, out of 30, record—keeping i~ done by

the Secretary in 8, in 6 by the Sarpanch, and in 16 it

is the lineman, who is an employee of the GSWSSB, who

~.eeps the record. Thus the Pani Parichayat is vi~ewed

more as a committee or an entity flominated by the

L3SWSSB, rather than as part and parcel of the Gram

59

Fanchayat and Panchayat Raj System.

5.12 At present, it appears that the Pani Panchayet

i~ ‘—iewed by the C~5W~bt~i~asa village—level body which is

ron—formal, non—statutory. Such a status has provided

the requisite f1e~ibility to make the Pani Panchayats a

social org~ri’~atiou’ which can influence the Gram

~~ctiayat t±urt)ul)I) the common link of the Sarpanch; and

through its moral authority it may regulate and control

the proper use of the water supply and can provide

iiIlage-1e~~.e1 feedback for the overall operation of the

-~chome. For- defining the status of the Pant Panchayet,

we will have to await further analysis.

ISSUES DISCUSSED AT PANI PANCHAVATMEETINGS

~Table 5.5)

3.13 The effectiveness and credibility of the Pani

Fanchayet will depend upon the issues it takes up for

discussion, the decisions it takes and gets implemented.

In all, B issues have been identified. How the role of

the Pant Panchayat is perceived by the GSWS~B i-s

abundantly reflected in the issues discussed at Pani

Fanchayet meetings (Figures in bracket denote frequency)

(1) Action against those who waste water (24)

(1) Ramov~l of unhvaienjc conditionsaround the stand—post (15)

(3) Action against those who break tapsand valves (10)

60

(4) Green fence around the stand—post (9~

~5) Informing the Board about breakageof pipeline (3)

14 The issues that reflect the complaints and

~.LjLJ1~IJI~ of the vii lage community are also discussed.

‘b) Irregular and unpunctual supply of (22)

water was the most widely discussed issue. If

ir~e I-~ni ~tt~ydL is able to resolve the

problem in the shortest possible time, it would

substantially build its credibility and

effectiveness.

(7) The attendance of Pani Panchayat meetings

~3) also seems to be a problem, showing lack of

interest and concern amongst the members. It

also contributes towards its ineffectiveness!

(8) The items for repair and maintenance in

stock are also discussed (2). This is an issue

that could build up the image of the Pani

Panchayat in the community.

5.15 Relating the status of Pani Panchayats with

issues discussed by the Pani. Panchayat, provides

in teresting findings.

~l) The ‘good’ F’Ps discuss all the B issues

mentioned earlier. They play a dual role

of satisfying the role perceived by the GSWSSD

61

dfld mulr~eou~ly reflecting and presenting

the problems a-f the local community.

t~ T~e ~ PPc al~ discuss the same

issLies, but with less frequency. They do not

perceive attendance by members as an issue.

(3) The non—cooperative or ‘inactive’ Pani

~‘~nchayats discuss action against those who

waste water (4), removal of unhygienic

conditions (3), irregular end interrupted

supply of water (4) and actions against those

who breaF the pipeline (1).

(4) ‘No sLIpply Pant Parichayats mainly discuss

irregular and unpunctual supply (4), action

against those who waste water (2) and breakage

of the pipeline (2). Other issues become

irrelevant because of non—supply of water.

WHO ATTENDS PANI PANCHAVAT MEETINGS ?

(Table 5.5)

5.16 The GSWSSBcan enhance and promote the image

and effectiveness of the Pant Panchayet by deciding the

level of representation of the Board at the meetings.

The GSWSSBstructure being hierarchical, the importance

of the meeting can be judged by who represents the

bc3ard

62

5.17 In ‘good’ F’ani. F’anchayats, the Board is

:~“ ~‘~‘~1 by the lunior engineer, supervisor and

!j’~r ~. In ‘average’ F’ani Panchayats attendance by the

t~t~rvi~ur arid mistry is more common.

5.ld In ‘non—cooperative’ Pani Panchoyats, only the

~lIperv1sor attends the meeting; the junior engineer and

r~tr/ never otter.ded ii. In fact, to improve the

aftectiveness and to strengthen the Pani P~nchayat of

each village, the meetings should be attended by the

junior engineer or even the executive engineer. These

Pani Panchayats should be treated as special cases and

shnLlld receive special treatment in terms of the level

ot participation, attendance, guidance and advice. The

maintenance and repair of human relations with the Pani

Panchayat is as much or perhaps more important than the

installations or pipelines.

~.I9 1h1~ relationship between the Pani Panchayat arid

the GSWSSE’ slides down to the lowest level when water

sLipply stops. Whatever the reasons, the village

LiJuI1LInity and the Pani F’anchayat as it~ representat t~’a

body, should not only receive a speedy restoration of

supply, but also a sympathetic hearing and moral support

from the GSWSSBduring times of crisis.

ATTENDING TO COMPLAINTS

(rable 5.6)

63

Cjr~e of the mechanisms affecting the P~ani

F~~iuu:ha/ot would be who attends to the complaints, who

uiuui,uiiicates to the local office of the Board and what

~ the time lag in camm(ln1c~tion.

As will be observed from the tables, it is the

~rp~’nch who a-ttends to the complaints in most cases.

second comes the lineman, who daily visits the branch

line from his village. Others play an insignificant

role; except in the case of ‘non—cooperative Pan,.

F~richayats, where the members themselves go out to lodge

the coinplaLnt.

5.22 At every village, the lineman is posted to

check the pipeline and to maintain and repair local

~nsta1lations. He also sends daily reports to the

Branch line office. In about 20 Pani Panchayats, the

lineman immediately reports the complaint, while in B

Fani Partchayats he reports as and when he i.s informed.

ihis implies that the complaints are attended to by the

E~ranch line without much delay. Only in 2 cases was he

perceived to be reporting very late, adding to the

inconvenience and hardship of the village communities.

HOWOLD ARE PAN! PANCHAVATS 7

5.2 Has the ettectiveness of the Pani Panchay~t

anything to do with their age? Do they need time and

e;:perience to be effective? Most ‘good’ and ‘average’

1~ni Panchayats are three years old. However, even

64

‘i~~e established in the last one year are also

ui-tinning ~4elI. Surpri~ingly, all the4 inactive

~Fs are also two or three years old and yet are

int~ffective in preventing wastage of water and damage to

installation. In no supply villages their formation

ranges from 1 to 3 years.

5.24 This leads us to understand that as soon as a

Pani Panchayat is set up and is found to be problematic,

the GSWSSBshould start strategic action to correct and

protect it, and should not wait for an automatic’

correction. But what actions can be taken? -

PREVENTION OF WASTE OF WATER

(Table 5.7)

5.25 The top-most indicator of the effectiveness of

a PP is that it is able to prevent the waste of water.

ihe Pani Panchayats were asked about what measures can

be taken far preventing the waste of water. 19 Pani

Fanchayats responded that no such waste of water takes

place. Others made suggestions which are noted below in

the order a-f trequency

(1) warning and -fine (11).

(2) persuasion and a contributiontowards welfare (17)

() informing the Sarpanch andengaging a watchman (7)

5.26 The inaCtive Pani Panchayats recommended

65

tines and

~tur~J(J~CS.

CJC I ~LI 1 ter

compulsory contributions towards charitable

~Th~ actual actions taken against the

s are given below in the order of frequency.

1 ) imposing fines

(~) giving warnirig~

~3) persuasion

(4) compulsory contribution to acharitable -fund

(5) police complaints

(6) taking the person to theBoards office

Imposing fines has been

action amongst inactive Pani

~r ~u~s1ori .~ritJ warning r an~ high

the defaulters. The list provides

proposed actions.

the most favoured

Panchayats. Even

as actions against

a good spectrum of

DAMAGE AND RESTORATION OF VILLAGE INBTALLATIONB

(Table 5.8)

5.28 Another concern of the Board has been the

damage done to local installations. A good Pani

Fanchayat can prevent it and bring punitive action

against the culprits.

5.29 18 Pani Panchayats responded that no such damage

occurs to their installations. In ‘gopd’ F’ani

Panchayats a fine is imposed and possibly collected,

u~uh~~hhas a salutary effect. The ‘average Pani

•( 16)

(9)

(11)

(6)

(5)

(2)

66

Fanchayats recommend police action which is not possible

these being essential service installations and

public property. Whether or not police protection is

actually given, any concern and support shown to Pani

1-anchayats and the Board by police authorities would put

check on such anti—social activities.

1J Most dam~ge is repaired immediately, reported

~ Fan.i F~nc1~,’~ts, and within 2—4 days in the case of

the rest. This is really a good performance by the

I ineman and the bn~rd.

BREAKAGE OF PIPELINE & ITS RESTORATION

‘ ~ihle ~j.9) -

5.T1 Breal~e of the pipeline, seriously disrupting

th~ water supply, has been one of the major anxieties af

the GSWSSB.

~. 3~ The Sarpanches were asked, who breaks the

pipeline’ 18 Pan,. Panchayats including 6 ‘no supply’

anti 4 inactive Pani Panchayat~ reported that no such

hrea~ age toot place. But the ‘average’ Pani Panchayats

rt~iurjed L~i~L ih~ ~~se w~s cattle—herders (2) or tree

roots (8)~

5.T~. Even if a major break—down takes place, 25 Pani

Fanchayats reported that most repair and restoration was

c~r;ried out nTumedi~teIy, 4 Pani Panchayats said that it

tool from a weel to a fortnight. In the cas~ ~i only 1

67

F~ni Fanchayat were the~ not sure of the time taken

~ reStOra~iLn. Hur& c,c. the GSWSSB ii~ ra~p~nd~d

~ui.te well to such ‘~illage crises, and the Pani

i~r-cha,.at should feel strengthened by it.

TOTAL STOPPAGE OF WATER SUPPLY

-r £- ii~ai.jiC a.

Often there is a co~nplete stoppage of water

supply. The frequency is higher with tail—end villages

especially during summer months. 21 Pani Panchayets

e-:perienced such stoppage last summer. What is most

intriguing is that the ‘inactive Pani. Panchayats do not

e;perience the stoppage of water. This may be due to

their pro>.lmity to head—works and booster—stations.

Total stoppage takes place during the summer due to a

i-all in the water—supply and due to a rise in demand and

consumption, or due to the malfunctioning of the

distribution system at some point.

D~RATION OF STOPPAGE

5.35 Out of 30 Pani Panchayats, 10 did not

experience any stoppage during the summer, 9 Pani

Fanchayats experienced a week’s stoppage and 5 Pani

Panchayats a fortnight’s. 2 Pani Panchayats experienced

one months and 4 Pani Panchayats about 2 months

stoppage. The good Pani Panchayats also experienced

one to two months stoppage.

68

ALTERNATIVE WATER RESOURCES

Whatever the reasons and the duration of the stoppage

•.t ui.i~-’r--su~oly. the villacie committees in such a situation

iti ~.wjtch over to alternative water resources that are

~ In a good monsoon year, 16 Pani Panchayats depend

u1on 1~nl water and 15 on private bore wells in the villages,

frani Fanchayats depend upon public wells and another 2 PPs

on public bore wells. 3 PPs depend upon private wells ~nd 3

FF-s bring water by cart from neighbouring villages.

5. :7 It is significant here that the water tanks are

ciwned by the Gram Panchayat, and its maintenance, repair and

up&eep in clean hygienic conditions is one of its basic

r~un~LjiLities. Same is the case with public wells and

public tubewells. These community—owned water resources also

influence a village’s health status.

5.38 If these alternative water resources are conserved,

augmented and improved by the Gram Panchayats and the Pani

Fanchayats, both . can play a crucial planning and

developmental role.

5. .9 Can the GSWSSB play a developmental role for

augmenting alternative sources? Would the term ‘water

supply include all the alternative sources? What would be

the structure and cost of such a development? How can it be

shared with the ‘local community’ and with other departmental

devf~lopment schemes like the Desert Development Scheme or the

69

~r~orc~t~t-ion of micro watershed development projects? Can

ii ~-h-~i~~ costs with the dairy—development programme?

It should also be noted that 1~ villages depend upon

k-iv~t~ bore—wells whenever piped water—supply stopa. The

pri~ate bore—wells are basically for agricultural purpose.

T~ie owner often sells water at a negotiated price, to

neighbouring land-owning farmers. The community members get

it free of cost whenever piped water—supply stops.

5.41 For the planning and management of water resources,

a comprehensive view will have to be taken, and it should be

liriled up with other developmental plans of the village.

5.42 The cost of supplying water by a tanker or bullock—

cart should also be taken into consideration when planning

for alternative water—resources development.

STRENGTHENINGPANI PANCHAYATS a ACTION BY THE GSWSSB

(Table 5.12)

s. ‘L.~ The Sarpanche. were also ask.d to make suggestions

about the GSWSSB’s role in strengthening the Pani Panchayat.

rrlough some of the responses are repetitive, y.t a number of

useful ideas have emerged.

5.44 They are recorded below according to their

frequency

(1) PP members should be provided’ withitems for maintenance and repair ofinstallations (14)

70

~2 An honorarium should be paid toP1’ members (12)

(1 E)eputy Executive Engineers shouldmeet the FP members every month (9)

~.4) Advice and guidance should be providedto PP members (9)

(5) PP members should be trained (6)

~ô) The PP should be reconstitutedevery year

(7) PP members should have an educationallevel of 6th standard (4)

(8) A PP meeting should be convened

every month (3)

(9) PP member. •hauld be elected (2)

(10) A telephone should be installed atone of the PP member~s house (1)

(11) The water tax should be lowered (1)

5.45 The above suggestions may be summarised in the

foilQwing areas of operation

(a) Reconstitution of the Pani. Panchayat on the

basis of election, with members having an

educational level of 6th standardp

(b) advice, guidance and training of PP members;

(c) provision of items for maintenance and~ repair,

and telephones at PP level; -

(d) The PP members should be paid an honorarium for

their work.

71

Fhe last suggestion (ci) needs special consideration.

As the lineman, who represents the Board in the Pani

FanLhayat, i_s an employee of the E~oard, the members also

e~pect some monetary compensation for their Pani Panchayat

~or$ . This suggestion should be analysed in terms of cost—

efficiency and functions of the Pani Panchayat.

GENERAL COMMENTSAND CRITICISM

(Table 5.13)

ihe Sarpanches were also asked to offer suggestions,

c~r,r1ents arid criticism, on subjects not covered earlier, or

~n -‘t~ they would like to reiterate. 12 suggestions

rt~ceiied are presented below according to frequency and area

L~f action

(a) Function of GSWSSB :

(1) Water supply should bepunctual and regular (20)

(2) Installations should beregularly cleaned (9)

(3) Items of maintenance shouldbe provided (B)

(4) Irregular attendance and lack ofinterest by the E~oardrepresentative (7)

(5) Lineman’s work is satisfactory (4)

(6) Lineman’s work is not satisfactory (3)

(b) Functioning of the Pani Panchayat a

(1) PP functioning well (B)

72

(2) FF does not dischare its duty (3)

(3) Adequate representation of allsocial groups - (5)

(4) Sarpanch not invited to the- meeting (4)

(5) Honorarium to Pani Panchayatmembers (4)

(6) W~ter ta.-~ should be lowered (2)

5.49 The suggestions in group (a) above relate to the

fur1ctioning of the scheme at the local le’el and its

performance can be improved immediately without extra cost.

However, the suggestions pertaining to the attitude

ot rt~e Eoard staff towards the Pani Panchayat and its

•ii~iiitit~rs~ and not inviting the Sarpanches to Pani Panchayat

m~( ligs is likely to create an adverse impact on the Pani

:t. Th~ .~tt~tude and behaviour of the staff member

tb&~ Fctñi. Parichayat, if properly oriented and attended

to, rare ~ubstantia1ly contribute towards its effectiveness.

Other suggestions being repetitive will be dealt

~L(h sep~rately.

CONTRIBUTION OF THE PANI PANCHAVAT TOWARDS COSTS

(T~.b1~5.14)

5.50 One of the basic criteria ~+or judging the

participation of the village community in the management of

r...~yiurial water—supply schemes would be their willingne.. and

actual contribution towards maintenance and operational

costs. From the Board’s point of view, a monetary

73

I

contribution is the most genuine form of participation in

tanagement, ano a coi,cr~Lt~ ~L~p towards self—management or

community—based management.

5.51 To ascertain the facts, we asked the Sarpanches

about the water tax. Their responses are presented in

Table 5.14.

It may also be noted here that we also carried out a

sir~al1 study on water ta>~, its level of collection,

alternative water resources and its management. The findings

ar-~ presented immediately after an analysis of their

r~ponses.

All the L~ram Panct-ayats have imposed water tax

~~jing from Rs. 5 to 20 per household.

However, out of ~S~lvillages, it is collected in 19

~nd not collected in 11. Out of the 11 non—paying villages,

S are ‘no supply villages, 4 are in ‘average’ category and

no each in good’ and ‘inactive’ category. Non—collection

i~ due to non—payment or due to lack of will and capacity to

collect tax. This needs to be further analysed.

The second category of responses to the question,

~hettier water tax is paid or not, were these ~ 20 out of 30

villages paid the ta.~es, while 3 ‘good’ and 2 ‘average’ Pani

F~ncI-~ayats did not pay -

The third question was about problems in payment.

74

5 Pani. Panchayats responded that there were some

difficulties, while an overwhelming 25 saw no difficulty inI

pa~,ment -

5.57 If we leave aside ‘no supply’ villages, we will have

lo find out whether the water tax is not collected or simply

riot paid. Is it non—collection or poor collection? What

influences water tax collection levels? The answers will be

tü~r,d after we go through an analysis of the field—data

collected through a small study.

ALTERNATIVE WATER RESOURCES * WATER TAX COLLECTION

A FIELD STUDY

5.56 Though the piped drini ing water is supplied to the

village—community and their livestock, water is also required

for other domestic uses like bathing, washing and cleaning.

It is also needed for agricultural and non—domestic uses.

5.57 With a view to finding out what the alternative

sources of water—supply are, how they are used, and whether

the village Panchayats are able to collect taxes (or cess) to

manage and run them, we carried out a field study.

CRITERION OF SELECTION

Totally 30 villages, 17 in Radhanpur taluka and 13

iii Santhalpur taluka were selected on the basis of (a)

availaÔility of alternative sources like bore—wells and water

tanks or atleast one of the two. The data collected provides

broad indications of the status of alternative water

75

resources. its use and its relationship with the mobilisation

Ot t,3 resources to maintain and run them.

TOWARDCOMMUNITY MANAGEMENT

5.b9 This indicative data can provide guidance about

planning for a cbmnmunity management of water—resources, and

tte conditions and capabilities of the communities to finance

anu manage them. It also provides indications as to what

~tent and how the drinking water supply scheme can be made

curimunity—financed, community managed, and to what extent

,ot~ide support in terms of, finances and management would be

requ i red . -

VARIATION IN TAX COLLECTION

In almost all the Gram Panchayats, per—house water

ta~ has been imposed ranging from Re. 5’ to 20. However, the

actual collection has varied due to several reasons. (Refer

rable 5.15)

(a) In the tail—end villages of Santhalpur taluka,

- the piped water does not reachp bor.—we~lls are

non—functional or saline or have failed; and

tank water dries up immediately after the

monsoon. Water tax is simply not paid by

six villages on the grounds of ‘no water

supply, no water tax’.

(b) During those years when people survive on

relief work or live on their past savings,

76

incur debt, or survive by migrating, the water

tax collection level goes down in almost all

villages. It improves when there is adequate

rainfall

Cc) Even in normal or ‘good years, percentages

of water tax collection varies from village to - -.

village which reflects (i) the capa~ity or

willingness of the households to pay taxes on ‘~

one hand, and (ii.) willingness and capability

of the GP to collect the taxes on the other.

It should also be noted here that the village

communities will judge the effectiveness of the Gram

Fanchayat on the basis of the availability of water from all

available sources i.e. from (i) GSWSSB installations, (ii)

bore—wells and (iii) water tanks. (Refer to Table 5.18)

MANAGEMENT OF BORE-WELLS

5.62 The status of public bore—wells in the villages

under study, also reflect the capability in terms of (a)

managemet-it and (b) resource—mu.~.i~isation of the ~3reir~

Panchayats. (Refer to Table 5.17 and 5.20)

L~an tjne integrated view of the water—supply from all

available water—resources support the rural cpmmunities in

inobilising its resources as a contribution towards the

water—supply? Further, is it also possible to plan for

increasing their capacity to pay water .tax by neutralising

77

~l~e impact of drought by taking drought—proofing measures?

How can the income—flow which is dependent on scanty rain—fed

~~griculture be transformed to a sustained income’flow with

the help of animal-~husbandry, craft—work or eco—regeneratiofl

programmes?

WATER SALE FROM PUBLIC RESOURCES

Out of 30 villages studies, in the village of

Gol.hantar in Santhalpur taluka, bore—well water is sold by

the Gram Panchayat for agricultural purpose. And in Satun

village of Radhanpur taluka, tank water is sold for

agricultural purpose.

The water from bore--wells was sold by auction for the

ice of Rs. 5,000 for the season in the good monsoon years

is—B c~iiU 1’~’7 ‘~. During tha three drought yc~r~

p~~eeding it, water was not auctioned.

Similarly, tank water at Satun village was auctioned

tor Rs. 2,000 for the season in the last two good monsoon

years. In the earlier three years of drought, no auction

took place.

WATER i MULTI—USE INPUT

5.66 What is suggested here is that water is also a

highly scarce agricultural input and fetches market value;

wherever it is available. We have observed in other chapters

of this report that several communittes depend upon privately

owned bore—wells for drinking water. In addition to public

76

bore—wells and tanks, there are a good number of private

bore—wells, whose water also fetches market value. It is

used for (a) saving the first crop in.case 04 insuf!ficient

rains in the monsoon and (b) to raise a second crop during

~-iI ri t e r.

5.67 Similarly, surface rainwater, if properly harvested

in publicly—owned water tanks by a water—shed treatment, can

reduce the strain on demand for drinking water, and supply

additional water for domestic use. It is also a potential

income—generator for the Gram Panchayat. The water can also

be used for fodder plantation or fodder farms. (Refer to

Table 5.19)

DRINKING WATER : INVESTMENT IN SOCIAL INFRASTRUCTURE

The piped drinking—water supply scneme, if vie~.~d .~

~ t~ic economic investment in the region, having multiple

long-term social benefits in terms of health and

~tat~ilisation t~f communities and for creating a developmental

Impact, can lead to other water—related schemes which will

have to be perceived, formulated and executed on these lines.

Water will have to be seen as a socially high—cost, high—

price developmental input, and it should be developed and

supplied for mawimum social gain. The prevml•~t market—rat.

of water charged by private owners of bore—wells provides

valuable data, which can guide the formulation of schemes for

the development of publicly—owned water resources and its

socially gainful supply management at community and inter—

79

co~hi1ILtrilL/ level. Several such exercLses for developing

LL,,liuiktl~Lt~ r ciurces through water resources development will

t\~’~ ic, u�~ gone through. It will need strong linicages with

t:d ~ ~~iIiich can strengthen the community against drought

~i~U ~~stiIe geo—climatic conditions.

&~u~o~cr,i,i~ U.siilied ic~ordIng to hi aethod o~r1oau~ation of aeaers, (hi beu.~ co-tirainus with 6rasPanchayats, (ci basis of reconstitution

Sr. OFT A I I S TYPE OF PAIl! PANCHAYATS

I Ii~ con5ultatiozi ösith Sarpancti 7 1 2 4

2 In consuItatio~i sith coasuritY leaoers 7

3 In consultation with school teacher

6 2 4

0 0 —

4 In consultation i.ith linea~n 0 0 — —

lotal respor~es 14 13 4 8

(hi Should FFs b~reconstituted if ter anew 6rai Parichayit is elected?

S V-

I C_

2 No

10 10 4 6

0 0

lotil responses 10 10 4 6—

(ci How should PFs be c~rstituted’

I All cuban ihould be elected

2 board should ocsinate tho isibirs

3 Sh~1Jci ncairatej on the ed-ice oftr.e Sor~or,~r.

4 It is better if ill the ushers are‘Olin

6 6 3 2

0 I — —

7 6 3 6

4 6 1 I

fAbLE NO

(ii How are •ubers roatnated ‘ 6000 AVERAGE INACTIVE NO SUPPLYNo. 1 No. 1 Mo. 1 No. 1

lotal responses Il 19 7 9

TAb-LI NO s 5.2

PP ushers classified according to gender1 age1 education.

Sr. 0 £ IA I I S TYPE OF PAIII PAI4CHAYATSNc.. -

6 E H 0 E R 6000 AYERA6E INACTIVE NO SUPPLYNo. 1 No. 1 No. 1 No.

I nile

2 Fe.ale

44 612 41 68! 15 681 30 15!

2? 331 19 32! 1 32! 10 25!

Total Responses

A6E 6R0t}P tin years3

66 1001 60 100! 22 1001 40 100!

I 21 to3O

2 31 to4O

3 4ltoSO

4 SI to6O

14 211 Il 28! 4 181 5 32!

17 26! 19 322 II 502 16 40!

22 33! 37 28! 5 23! 13 33!

13 201 7 12! 2 91 4 10!

5 60 and above 0 0 0 0 0 0 2 5!

Total Responses 66 1Q01 60 3002 22 1002 40 1002

FDUC~TlOUALLEVEL -

I Illiterate

2 StU. I to 7

3 5(4. 8 to 1~

4 StJ. 11 to 12

26 39! 32 54! 9 36! 26 65!

37 562 23 381 11 502 12 302

3 5! 2 32 ‘2 14! 2 5!

0 0 2 3! 0 00 0

S 8(0. above I? 0 0 I 2! 0 0 0 0

Total Responses 66 1001 60 1001 22 1002 40 100!

TABLE NO 5.3

PP Neabers classified according to occupation, designation.

Sr. 0 E T A I I S TYPE OF PAIl! PANCHAYATSNo.

OCCUPAT ION 6000 AVERA6E INACTIVE NO SUPPLYNo. lMo. iMo. iMo. 2

I Agriculture 40 60! 39 65! II 502 19 481

2 Linesan

3 Dosest;c work

9 33! 10 3?! 4 38! 6 15!

32 18! 9 352 6 21! 7 181

4 Pris~ry teacher

~. Religious Services

2 3! 0 0 - - 6 IS!

1 2! 0 0 — - I 22

6 Labour ~ 32 2 32 I 51 I 22

Total Responses 66 1Q02 60 3002 22 3002 40 1Q01

OESI6I4ATION IN PPs

I President

2 Vice-President

9 73! 10 652 4 182 5 14!

S 12 6 101 0 A I ‘IV I 4

3 Nisber 48 141 39 Ill 14 77! 28 70!

4 lir.es.n 4 62 5 8! 4 5! 6 14!

Total 66 1002 60 (002 22 (00! 40 3002

TABLE NO 5.4

PP classified according to (I) periodAcity of .uting,(2) record ieepirg 13) Record-keeper.

Sr. - 0 II A IL S 1YPE OF PAIl PANCHAYATSMo. -

Periodicity of PP seetings GOOD AVERA6E INACTIVE NO SUPPLYNo. lb. 110. ho. 2

—--—4—

I Every south . 5 50! 5 502 I 252 2 332

2 Every three ac.nths 2 20! 4 40! 2 50! — -

3 Every six .onths 0 0 0 0 — — -

4 Every twelve sonths

5 As and incA required

Mhether air.ut~s are recorded?

B y ~UZ 3 152 3 502

2 lb 2 20! 1 302 1 25! 3 50!

Total responses 10 1002 10 1Q01 4 1001 6 3002

Whc. kei~5 the record ~f the sinuteO

1 Liresar. 6 602 6 602 2 502 2 332

I 6raa Parcha1at Secretary I 101 . 2 102 — 2 33!

3 Sarpanch I 30! I 302 2 501 2 34!

4 bone 2 20! 1 202 — — — —

Total re’.pc.r~es 10 1Q01 30 3002 4 3002 6 3002

Total responses

0 00 0- -_

3 302 I 302 I 252 4 67!

10 3002 30 3002 4 1001 6 1001

T.81E N~ 5.5

PP classified according to topics discussed at the seeking,ard level c,f representation of SSWSSBat the .eetirg.

Sr. 0£ I A I I S TYPE OF PAIl PAI(CIIAYATSHo.

Topics discussed at the PP seeting 6000 RVERA6E INACTIVE NO SUPPLY TOTALNo. FR No. FR No. FR No. FR RESOURCES

I Irneqi.!ar a~Junp~.rctuaI s~ppiy of water 8 7 3 4 22

2 Ri&c.~a1 of urihyglenic conditions around 1 4 3 I .15stand past

Action against those who waste water 9 9 4 2 24

4 Attendance at PP scetengs 3 — — — 3

~ Action egairst thc~se who break tap!, 5 2 I 2 30walvis, etc. -

~ Green fence around the stand-post 3 5 — I 9

7 T~stc~I~r~c~~teascf repair I I — — 2~ ~..irter..~ce

~ 1rf~rsargGc.ard at..ut d0sage to the 2 I — — 3pa ~c lire

Total responses 38 29 II 30 88

W~orepresents GSWSSBat the seetang? FR No. FR No. FR No. FR No.

I Junior Engineer 3 I — —

2 Plistry 3 6 — —

3 Clerk 0 — —

4 Supervisor 7 5 4 4

3 None - — — 2

Total responses 34 I? 4 6

IAk1.E WO ; 5.6

PP classified according to (a) who attends to cosplaints, (b) periodof forsulating, (ci time taken by lineman to attend to the coaplaint

Sr. 0 F T A IL S TYPE OF PAN! PANCHAYATS

Ia) WP4o atterhds to complaints from PP’ GOOD AVERAGE INACTIVE NO SUPPLYNo. tWo. tWo. tWo. t

5 10 3 5

2 Female 3 — 1

3 PFm~abers I — 2 —

4 Other leaders I — — —

Total Responses JO tO 6 6

1W Ptriod of form.ilatir~g of PP

I 5~s scrtts 1 1 — —

2 Uce ,ear 1 0 — 2

U~,e iri3 a r1alf ,ears 0 0 — I

4 Isoyears 3 3 2 2

S Triree years 5 6 2 I

Total Remponmes 10 10 4 6

(ci lame taken by lineman to registerwith GSkSSS

lmae~iatelj 5 7 3 5

2 As and iben informed 5 2 1 —

3 At him convenience 0 0 — —

4 Very late o I — I

Total Responses tO 10 4 6

TAbLE NO i 5.7

PP clasiifitd according to (a) seasures taken to stop waste of wattr,-(Iai actions against those sno waste water.

Sr. 0� T A I 3. S TYPE OF PAuL PAMCHAYATSIso. -

a) r.easures to prevent waste of water 6000 AVERA6E INACTIVE NO SUPPLY TOTALNo. 1 No. 2 No. 2 No. 1 RESPOUSES

I H3 waste of water takes place 7 7 — 5 19

2 N~rr~iogand fine 4 3 -3 I II

3 Persuasion ar3 contribution towards 0 6 I 0self are

4 Ir.icrsirg Sgr~oncti or,d engaging a witct. 6 I — r ‘ 7

Total P.esponss 37 37 4 6 44

tbJ What action~ore taken againstwho uoste ~

—----——----—__--------

I Stern warning 4 2 1 2 9

I Ppr~ujeion 5 5 3 — Ii

3 Taking t~eperson to GSNSS8 office 2 0 — — 2

4 lsposang fines 6 4 4 2 36

5 Police cosplaints I 3 1 — 5

a Ccapulscry contribution to charitable 2 2 — 2 6fund

a~du~v 0 0 — — 0

Total Responses 20 36 7 6

TABLE NO ; 5.8

PP classified according to (a) action taken against those who damagelocal ir,stallatic.ns, Ib) time takec~ in repairirsg it~

Sr. DETAILS TYPEOFPAWIPANCIjAYATSRESPONSESId Action taken against those who GOOD AVERAGE INACTIVE NO SUPPLYcause damage to local installations No. t No. t No. 2 No. t

I lo recover the value of item damaged 0 I —

2 poLice coaptaint 0 4 — 1 5

3 Imposei fine 4 2 I I B

4 Gi.’er, iarrzhg 0 I — I

h,~ Jam.ge tails ~a:e 6 5 3 4 ID

Total Responses 10 13 4 6 33

(hi Tiae taker, in repairing the damage

I Immediately 6 6. 3 5 20

2 2—4days 4 3 1 1 9

3 Oneweet 0 0 - — -

4 ISdays 0 I — — I

5 One.onth 0 0 -

Total Responmes 10 10 4 6 30

TAbLE NO 5.9 -

PP clas5ified according to (a) their perception as to who breaks thepipeline arid (bI r~owlong it taLes to repair.

Sr. 0 E I A I I S TYPE OF PAMI PANCHAYATSRESPONSES~a) Perception as to who breaks the 6000 AVERASE INACTIVE NO SUPPLYpipeline No. 2 No. 2 No. 2 No. 2

I Anti-socia’ elements 0 — — I

Cattle—breaker-s 0 2 — - — 2

tree roots 1 8 — 9

4 No breakage 6 0 4 6 18

Total kesponses 10 10 4 6 30

(b) Now Ionq does it take to repair thepapal ass?

a lu,daat.Iy 10 6 4 5 25

2 WitIsts a net 0 2 - — I 3

3 Within a fortoaght 0 I — —

4 Within a •ontb 0 0 — - —

5 Motsurt 0 I - -

Total Respo~sis 30 10 4 6 30

TABLE NO 5.30

PP classified according to (a) stoppage of water supply last susaer, (b)duration of stoppage, Ic) alternative water resources relied upon.atatus of F?

Sr. 0� TAILS TYPEOFPANIPANDfAYATS

~.: tether the nter supply stcpped 6000 AVERA5E INACTIVE NO StWPLYlast suaser Mo. 2 No. 2 No. 2 No. 2

‘ 702 8 ROt - - 6

3 301 2 201 4 - 9

Total Responses 10 1002 10 1002 4 — -6 — 30

Ib) Duration of the stoppage

I Oneweek 6 602 2 202 - - I - 9

2 A fortnight I lOt 2 202 - -2 — 5

3 One month 0 0 I lot - - I - 2

4 Two months 0 0 2 202 - —2 — - 4

5 Supply did not stop 3 302 3 •30t 4

Total Responses 10 lOOt 10 1001 4

- - - to

— 6 - 30

Cc) Alternatne water resourcesrelied upon during stoppage

3 5 2 6

2 Public bore-well

Public well

0 2

I —

2

2

4 Private bore-well

~ Private well

i ñi.er-bed dug-wella

7 Froa other village by cart

6 6 2 I IS

2 0 1 - 3

0 0 - -

I — J

a Pros otter village Dy tanker I 0 — — I

2 ho

RESPONSES

— 21

I lank 16

3

rotal Responses 14 IS 5 8 42

TABLE NO 5.!!

Suggestions for making PPs effective

S TYPE OF PANI PA)ICIIAYATS~r. ü.E I i I I

5u~isticns tot making PPs e~ective 6000 AVERAGE INACTIVE NO SUPPLYNo. ZNo. ZNo. ZNo. 2

I E’.er~ mor~tr. ri~~Iarseetirigs ~houl4be

2 Resolution of the PP s~.c.uld reachbranch-line oiiici i.sediat~ly

3 Mirutes of the meeting kept by linemanshould be circulated to PP members

4 PP ~høuldbe deaocratically electedeyery year

5 PP members should be pu4 an honorariu~

6 PP members should be trained

6 6 2 2

6 3 2

4 3 2

5 4 2 2

7 All social groups should be dulyreprementeø in the PP

4 0


0 5

6 5

Sr. o E r A I L S TYPE OF PAIl! PANCHAYATSNo. —

What action should 6SV558 take tostrengthen PP~~ No. 2 No. 2 No. 2 No. I

I PP iesbers should be trained

2 Deputy Executive Engineer to visit PPmembers every month

3 PP nesbers should hav, a minimumeducational level of 6th standard

4 PP seabirs should be provided items forrepair and maintenance

5 A telephone should be installed withone of the PP members

6 An honorarium should be paid to members

7 A PP meeting should be convened withoutdelay every aonth

8 PP sflbers should be elected

9 Every year PPs should be reconstituted

10 Advice end guidance should be providedto PP members

2 3 2 1

3 4 1

2 0 2

7 5 1

6 4 2

4 2 1 2

II Water tax ihould be lowered 1 0


TABLE NO : 5.12

Suggestions for 6SWSSB to strengthen PPs.

GOOD AVERAGE INACTIVE NO SUPPLY

0 I

2 1

4

TABLE NO 5.13

General suggestions, comments, criticisms of PP members.

Sr. 0 E I A I L S TYPE OF PAIl PAEHAYATSNo. — — —

6eneral suggestions, couents, 6000 AVERAGE INACTIVE NO SUPPLYcriticisms No. I No. 2 No. 2 No. 2

I Honorarium should be paid to PP members 2 1 1 -

2 Water supply should be punctual & 7 8 — 5regular

3 Stands—posts and troughs should be 4 4 I —

regularly cleaned4 Items for cleaning should be stocked 4 4 — —

with members

5 PP has no problems 3 4 I —

6 Irregular attendance and arrogant I 3 — 3behaviour

7 All social groups should be provided 2 3 — —

adequate representation

8 PP is not discharging its duties 1 0 — 2

9 Sarpan~h is not invited to PP meetings I 2 — 2

10 Lin~.ens work is not satisfactory 1 1 — T 2

II Water tax should be lowered 0 2 — —

Il Linemans work is satisfactory 0 3 — . —


TABLE NO i 5.14

PP classified according to (a) water tax collected, fbI whether it ispaid and (c) problem ir~ paying water tax.

Sr. 0 E I A I I S TYPE OF PAIl PANCI4AYATSNo.

(a) Whether water tax is collected?No.

GOOD AVERAGE INACTIVE 110 SUPPLYZNo. lb. iNo. 2

I Yes 9 6 3 I

2 No 1 4 1 5


fbI Whetber it is paid~

I Yes 7 8 4 I

211o 3 2 — 5

Total Responses 10 10 4 6— .-————

(ci Will there be difficvlty in payinga water ~

i yes 0 2 1 2

211o 10 0 3 4


Table No. 5.15

Villages distributed according to the level of watert~ imposed by thE- Oram Par,chayat

Sr . L~ve1 of water tax Radhanpur Santhalpur Total No.’lb. and it basis Taluka, No. Taluka, No of ~

of villages of villages villages

1. Rs. 5/- per house II 4 15

2. Rs. 10/- per house 6 — . 6

3. Rs. 20/— per house — 3 ‘

4. Non—paying villages — 6 6

Total 17 13 50

5. 1’l~-i~~Eit~ 1—252~-5051-7576-100

5. l’?E~Q--90 1—25

6. t1cJr~—~.4y1ny~ 1 ~i

26—SO5 1-7576—100

6• 29 3

2

Table No. 5.16

N~rt.~:r Of viI1a~s distribuL~d according to

-~ L~ percent~uj~ ~f ~-~ter tax collection

Sr. (ear Y.ag~ of Radhanpur Santhalpur Total No.No. ~ctua1 Taluka, No Taluka, No of

collection of village,s of vii lages villages

1. iQl~-Oo 1-25 9 4 1326-50 8 2 10

— I ~J76-100

2. 198~—~37 1—25 8 4 1226-50 8~l-75 2 276—100 1 1 2

5 58 83 4 71 3 4

a124

912

4. 199i~-U9 1—2526—5051-7576—100

95 73

6 6

Table No. 5.17

ViIi.~i~jt~s distributed according to the ownership and

ic,~n.~cjeinent of public bore—wells for drinking water

Sr. ih~r.~-rship/management Radhanpur Santhalpur Total No.No. i~t tjure—wells Taluka, No Taluka, No of

c,f villages of villages villages-- -- f

1. Grain Panchayat 14 10 24

2. Oujarat Water - 2 2Re~otirces.Development Fund

3. ~1ci public bore—wells 3 1 4

Total 17 13 30

Table No. 5.18

Villages distributed according to the Status oftore--~ell as ~n alternative source of water supply

~r. ~~tLIs of bore--i.~ell Radhanpur Santhalpur Total No.tIc. Taluka, No Taluka, No of

of villages of villages villages

Bore—well is working 3 1 4

Bore—well water has 2 — 2oc~nesaline

3. No electricity - 2 2connection to runthe bore-well

4. rIo bore—well in the 3 2 5vii lage

5. Bore—well has failed — 3 3

Nc~ money with Gram 4 — 4F.-~rcr,ayat to repairbcir c—we 11

7. Electricity supply 2 2disconnected becauseof non—payment ofdueS

13. Bore-i.~ell.not working 3 5 . B

Total 17 13 30

Table No. 5.19

Villages distributed according to the uses of Tank~-~ater according to ~e head cf Gram Pahchayat

Sr. Purpose of &ise of adhar-.pur Santhalpur Total Nc..N43. Tank water ialtil ~, No Taluka, No of

uf ~.i1lages of villages vil1agE?~

1 . Domestic use 17 13 30

2. Animal use 15 13 28

3. i)rlnking use 14 9 23human consumption)

4. Agricultural use 1 1 2‘..i 11 age

Note: Whene~,er and for whatever period of the year it is.-~vai1able, tani water has more than one use.Frequency in the table shows priority in use.tab’e shows priority in use.

Table No. 5.20

‘~‘iIlages distributed according to percentage of water

t~x collection by the GP

Sr. ‘~of water ta~ RadharpLir Santhalpur Total No.ISo. coLlection Taluka, No Taluka, ND of

— of villages of villages villages

1. 407. collection 5 2 .7

2 - SOY 1 5 6

3. 5 — 5

4. 7i~i~i~ 3 — 3

5. ~~:: 1 — 1

1 — I

7. I~i~-. 1 1

8. No collection - 6 6

Total 17 13 30

CHAPTER : 6

LINEMAN u THE VITAL LINK OF A PANt PANCHAVAT

WHY LINEMAN?

At village level, the GSWSSB is represented by

the lineman or linewoman(LM) who is tt~e lowest

functionary in the institutional heirarchy. He or she

is in almost all cases a local person, resides in the

village and provides maintenance and repair services.

He or she is also a member of the PP and often convenes

PP meetings and keeps records. He or she daily visits

the Branch—line office and provides information about

the working of the scheme, also passing information from

the branch—lin, office to the PP. This is a liv~

channel of communication. It is the attitude, behavibur

~ ~rm.~-’~e a~ “illarj~’ level of the lineman. th~t

would determine the quality of relationship between the

PP and the GSWSSB —— and more critically, the

effectiveness of the Pani Panchayat.

6.2 Due to the significant and pivotal role they

pl~y, we decided to carry out a field—study of the

Linemen of the PPa selected on the basis of their

performance. We have also included lineman of six

villages, with no supply .

6.3 The questionnair, was filled canvassed after

personal interviews with each lineman. Their responses

1~l

are tabulated and the analysis is presented in the

following paragraphs. -

AGE GROUP

6.4 Out of 30 linemen, 28 are below 35 years of~age

and 8 are between 18 to 25 years old. Most of them are

in a trainable age—group and after some intensive

training) c~ri play a vital role in making the PP

effective, and in fostering a harmonious community

relationship (Table 6.1).

EDUCATIONAL LEVEL

17 linemen have received primary education, 7

secondary education, and 6 are illiterate. With a

~dc,ur~ibie eUULCtL).%JII~A i~el, .~lcr~ t~ith practIcal

iraintenance and repair training, linemen can be given an

intensive training in record—keeping, complaint

processing and commLlnlty relationship through reading

ui~teria1 supported by visual aids (Table 6.1).

OTHER OCCUPATION

6.6 A lineman~s work is a full—time Job in terms of

duties and hours of availability. 12 linemen have no

otner economic activity and 6 work as casual labours in

the agricultural season. 12 also work in agricultural

operations on their own land. 19 linemen are landless,

which means that the wages from GSWSSRis their only

source of income (Table 6.1).

102

LENGTH OF SERVICE z WAGE LEVEL

Almost all the linemen (28 out of 30) are

wor~1ng with the GSWSSB’ for more than three years. Only

two have worked for 1.5 to 2 years (Table 6.2).

6.8 The linemen are hired on a daily—wage basis.

The monthly wage—income for 14 of them is Rs.5øø-7~ø and

17 earn more than Rs.700 (Table 6.2).

TRAINING

Out of 30, 27 linemen knew about the training

offered by the GSWSSBand 3did nbt know. However, only

Ii~d underyon~ ~ train.Lrtg and 24 had not yet. For

inac.tive’ and ‘no supply’ category of PP~, no linemen

ri~v~ been sent for trainig (Table 6.3).

o.lO Though only 6 had undergone training, 14 knew

about what the training entailed. They are presented

below according to frequency of responses z

(1) How to repair pipe—lines (6)

(2) How to repair stand—posts (3)

(3) How to repair tools &- equipment (2)

(4) Knowledg. about rw~ular

supply of water (2)(5) How to procure materials

from stores (1)

A strong component of repair and maintenance is

a thorough training. However, along with the technical

training, how to work with the community and make the PP

103

T

~n effective organisation is an equally important

T.pc.r.ent ~r.d it chould be introduced as early as

possible (Table 6.3).

cD.12 The untrained lineman should be covered under a

well—planned and balanced training programme. It will

contribute towards improvement in community relations,

vitalising the PP and developing a positive relationship

and attitude towards the GSWSSB (Table 6.3).

MEETING OF LINEMEN

The linemen are expected to report daily at the

E~ranch—line office. However, the question is whether a

,ormal joint meeting takes place or not. Their

responses are recorded in terms of frequency.

i1~tiriy takes place

as and when required

monthly

fortnight 1 y

bi—monthi y

quarterly

yearly

~. 14

potential

imparting

S. i 11 S

Engineers

The E~ranch—1ine meetings can be a high—

opportunity for participatory t’raining in

technical as well as human—relationship

However, to harness this potential, the Junior

will have to be trained and provided with

(1)

(2)

(3)

(4)

(5)

(6)

(10)

(9)

(6)

(4)

(1)

(1)

1 ~4

in~d~l~ of training material, including aLIdiOViSUal aids

(Table 6.3).

.15 In fact, the linemen can be trained to do

e>;tension wor~’ for development activities and programmes

in the field of (a) health, (b) water resource

development, (c) ecological regeneration and Cd)

enlivening the FP.

MEETINGS OF THE PANI PANCHAVAT

4.16 All the linemen, without exception, attend PP

ir~tings. However, the frequency of such meetings are

~ide1y different. 14 PPs meet as and when required,

iiriplying sensitivity to the need and delay. However, B

meet every month, 3 every two months and 2 once a year.

Interestingly, 5@ per cent of goode and ‘average’ PPs

i~i~et as and when required. It is not possible to

establish a co—relationship between the regularity of

~i1eetings and effectiveness of F’Ps (Table 6.4>.

6.17 The resolutions and decisions of the PPs are

r’ommunicated to the GSWSSE~by the Sarpanch in 18 PPs,

and by the linemen in 7 PPs. Some other procedure is

followed by 3 PPs.

6.18 In total, 18 F’Ps convey their complaints orally

and 7 PPs in writing. In this situation, it would be

difficult to find out whether a complaint is attended to

or not, and how—low it tool to atend it (i.e. the time—

105

[~g Detween recording and redressing a complaint) (Table

PREVENTION OF WASTE OF WATER

~.19 Out of the 30 villages studied, waste of water

t~a~es place only in 4 villages, where PPs are both in

average category and inactive category (Table 6.5).

The linemen have also suggested actions for the

prevention of waste of water. They are presented in

order of their frequency (Table 6.5).

(1) Legal action (8)

(2) Provision for finos (B)

(3) Persuasion (6)

(4) Warning (6)

(5) Sarpanch should be informed (2)

(6) PP members should be informed (2)

(7) Proper and quick maintenance

of stand—posts (2)

E’REAKAGE OF PIPELINE

It is one of the ditties of the linemen to chec~

th~ pipeline daily and to repair it if a breakage has

1~ lxr~’~ ‘eport that bre~~ i1s~~~t~Ie

~t~ce, and an equal number reports that it does not take

However, the proportion of reporting of

Dr~.aI age is quite high. -

1 ~

Who breakes the pipeline and why? The

s perception was that anti—social elements (6)

~J shepherds who take animals out for pasture—9ra:lng

~Il1 break the pipelines. In a solitary casp, (1) tree—

roots break the pipeline. The shepherds do it to

provide water to their animals while they are grazing.

Li. one case, it was reported that the breakage was due

to a defect in laying down the pipeline. In answer to

this query, 12 to 16 linemen reported that no breakage

~aIe~ place (Table 6.6).

How long does it take to repair the pipeline?

d-in overwhelming number of linemen (21) respond that

repairing is done within 24 hours. It takes one weel..

~cL..Jrd1ng to 7, and 4 weeks according to 2. Sinre

~r.:~t~ge leads to the disruption of down—stream water-

~upply and waste of water, the problem needs immediate

attention. - Preventive and restorative mechanisms should

tie geared and strengthened up. Since the pipelin~ is a

public property and water—supply is ~n essential

service, legal action against the culprits can be

~iiit *~ttecJ uilhui ur.~ier tnu t~.;iStiny ldYd~, ~Jr a speci.~l

~etjisatior. car. be enacted.

MANA6ING CRISES : LINEMANS ROLE

TIt~ no~t ~1?r]o~l5 rrj~is for the rural community

is the stoppage of the supply of water. What role does

the lineman play in such a situatxc~~?

107

22 linemen inform the Branch—line office, which

i~-~ the top—pri.ority relevant action. 3 check the

pipeline for breakage. 6 also try to make alternate

~ IQr w~twr (kufwr to 1abl~ 6.8).

In case of short or prolonged stoppage or

water—supply, which are the alternative resources people

u5~~ We have recorded the linemens point a-f view.

Some of the rural communities may have more than one

resource in addition to piped water.

o.27 Various alternative water sources used by the

people are recorded below (Table 6.8) :

(I) Water tank (19)

(2) Public well (6,

(3) Public bore—well (3)

(4) Private well (5)

(5) Private bore—wells (5)

~6) F~iver—bed dug—outs (2)

(7) W~.ter tanler of the Board (1)

It needs to be e>~amined whether the PP with the

~.pr~ort, guidance and technical assistance of the GSWSSB

~.ar look after the maintenance, repair and development

i:~’ all the publicly—owned water resources like (a) water

(b) public well, Cc) public bore—well, Cd) river-

bed dug—outs and Ce) water tanker.

This e;:ercise can be gone through at each

108

village—level and also at a group—of—village level. In

an arid zone like the Santhalpur—Radhanpur talula,

through comprehensive water—resource management and

ciev~lopnient, and using water to its best potential,

long—term and short—term development processes can be

initiated (Table 6.8).

LINEMANS PERCEPTION OF PPs

•~. :0 Whai do the PP members ~o individually or

collectively to stop the waste a-f water and damage to

Lh~ pipeline? According to 9 linemen, the PP members

are afraid of taking any action and 23 feel that in

their respective villages, none can exercise control

civer others, as none obeys the bther. In fact, the

traditional authority structure and subtle balance

tit~tweeii various conimunities are weakened, and a new

~tatutory, legal and secular structure is yet to take

rout and command power and authority. The GPs, elected

L~, popular vote, are unable to exercise their power due

~ Ut- i,t:u~s~r-~ support. trom higher authorities,

i ur tear u I ut.. I iitj pupn 1 ~r ~uppor I if they take har~I

~.d Lkrpleasar.t decisions iF~eter- Table 6.9)..

ACTIONS BY G6WSSB

Th~ lineman as a front--man of the OSWSSB has to

face all the problems and difficulties at the village—

level. This may be related to the working of the scheme

or the functioning of the administration a-f the GSWSSS.

1 1â9

We asked th~ linemen to specify what actions tha GSWSSb

could tai-e to make PPs effective. Theis responses are

classified by frequency (Refer to Table 6.10) ~

ti) Items for maintenance,repai.r and cleaning shouldbe provided to PPs (12)

(2) The 8oard should checkthe pipeline daily (10)

(3) The board should checkthe pipeline weekly (B)

(4) PP members Rhould be paidan honorarium (8)

(~) Linemen should be providedwith a bicycle (2)

(6) Linemens complaints shouldbe serioulsy listened to (2)

(7) Linemen should be providedwith means of self—protection (1)

(8) Linemen should regularlymark attendance (I)

An analysis of the responses will be done after the set

of responses to the last open—ende’d questionnaire is

e-~mined in the following paragraphs.

OPEN SUGGESTIONS AND COMMENTS

~. ~2, The linemen were asked to record fri~e:

~‘y~estion~, •comments and criticism at the end of the

quebtionnaire. They may refer to areas not covered in

~ qa4.~tc.I,~ii~ir1~ ur •n~’ rekLcr.~te idea~ eHpres~ed

~ i )I)fl~.L~~ aro rt~corded below For ready

LILrtilILe ~i~It~r t~u lable 6.11) :

110

~1) ~ should be providedfur checI irig the pipeline andrCc~LhiII~ Ui~ braI~Lh-lifle office ~(l8)

(2) FFs should meet regularly (14)

(.) Wages should be increased andpaid on appointed days punctually (10)

~ W~t.chnien should be appointed (4)

(ti) Marking attendance at theHranch—line office should be -

weekly and not daily (3)

(6) Adequate items of repair and

maintenance shoCUd be provided

(7) No comments (2)

(0) Means of protection shouldbe provided (1

(1,) Lirievner~ ~tou Id be made permanent

ciriployces instead of daily—wageworkers (1)

(10) Tho P1 is ã~tiy~ (lin.esiiensown village)

PROBLEM AREAS AS PERCEIVED BY LINEMEN

6.33 From the suggestions and comments recordeu

above, we are able to identify problems, analyse the~ri

and offer possible solutions. -

(A) EMPLOYMENTRELATED ISSUES

(1) ihe linemen demand bicycles for checking

the pipeline and for reporting to the Branch—

1~n~ off~c. If other staff members of fh~

GSWbSf~ are being provided with a Jeep or

Motorc,-cle for their work, this suggestion

~ •~s ~ahpattc&~t1c consideration.

111

.~ E~~!a.- paym~nt ~f .,a~as can CErtai~1y b~

~r r dII~JeU withuul difficulty. However, making

them permanent employees involves cost—

consideration and may affect their performance.

~3) Daily ir,arl.ing of attendance is necessary

and, in fact, 5hould be insisted upon. It

would provide regular feed—back from the

villacje and prompt action can be initiated.

(4) Provision of a means of self—protection

needs sympathetic consideration. Looking to

thw e~tuations they face, and the role they are

e~~pected to play, it deserves consideration.

(~) Appointment a-f ‘watchmen also deserves

consideration. Looking to the damage done to

the pipelines and village—level instal1atior~.

the villages with high frequency of damage

should be identified. The GSWSSB may appoint ~*

security staff to support the PP5 work. In

case of habitual offenders in rare cases, even

criminal complaints can be lodged with the law-

and—order machinery. However, such punitive

actions should be initiated only after creating

a favourable public opinion for

action and isolating the anti—social or asocial

ci ~t~uri t s. [he GSWSSBs security ~ 1 $

Can play a preventive role.

112

(8) FUNCTIONAL CHANGES

1) Ihough the linemen are supposed to check

the pipelines daily, they have proposed that

other bSWbSh staff should check it. This

~ I i Lt~ i u,siied i. ate I y imp 1 eaten tI.~LJ ~, ~i

after identifying areas or places of damage,

inlensive checks can be carried out and actions

can be taken.

(2) There has been wide—spread demand from

FFs and linemen for anadequate supply of items

for maintenance, repair and cleaning. Lack of

such items can lead to the disruption of supple

of water and waste of water. With detailed

record—keeping on issuing of items and

inventory management, this inadequacy may b~

removed and the efficiency of the mainter,~u~~e

staff and the effectiveness of the PP can be

substantially increased.

(C) RELATED SUGGESTIONS

(I) Linemen have suggested that meeting of

the PP should be convened regularly. It setm~

that it is done by linemen at the instance ~.r

Branch—line Engineers. Unless they instruct.,

rne~tiigs may not be convened. In fact, the

I~r~iti~.tive Ehould rest with the Chairman of the

FF, and linemen should carry out his

ii:

instructions. However, the Chairman and PP

members should be told that they can convene

meetings and that the linemen will assist them

in the process. This uncertai.nty should the

power and responsibility of th~ PP and linemen

should be clarified and specified. It will be

a major step towards the consolidation of PPs.

(2) Linemen have also suggested

members should be pcsid an honorarium.

suggestion has also been made by the

Sarpanch and other members. Their

behind this demand is two—fold ~

(a) As everyone who works for the

GSWSSB, including the linemen, are fully

paid for thei.r work, why not the PP

members?

that PP

The same

PP, the

rationale

(b) Further, as nomination of the PP is

done by the GSWSSB, the PP membership i~

ZiriFed Lip with E’oards work, so the Board

~Iuou1cJ pay. ~ PPs work is not perce1.~-~i

a~ community—work or work done to serve

the village—community.

:~. ~ Wh~ii i~ r~commend&~dis that the PP though

~iCe1Ved and nominated by the GSWSSB, should now be

ci~t~d ~iid t iii~ ~U up wi (di the Uram Fanchayat. It should

f-unction more as a community organisation. A lineman~

114

services should be made available to the PP.

~. 35 t~n honorarium is a form of monetary incentive.

The GSWSSE4 and the Panchayat Administration should think

of non—monetary incentives which can provide

information, generate interest and bestow status upon

the members. It should be linI.ed up with effectiveness

of the members and the PP as an organisation. We will

discuss the details of both types of incentives in the

fol lowing chapters.

4 4

TABLE NO ; 6.1

Lineaan cla~sifieJ acccrdir.g to Ia) age, (hi educational level1Ic) ott.er c~ccupitiors5, (01 land holding.

Sr. 0£ T ~ JIB TYPE OF PAJH P~NCHAYATS113.

(a) Age in years GOOD AYERASE INACTIVE NO SUPPLY TOTALNo. 1 No. 1 Ho. 1 No. 1

1 18to 25 2 20! 6 60! - - - - S2 26 to 35 7 70! 4 40! 3 75! 6 1001 2u3 36 and above I 10! - I 25! - - 2

ToTAL 10 (00! 10 1001 4 100! 6 tOO! 30

(hi Educational Level

I 1lIit~rote 2 201 2 201 2 50! - - o2 1 to 7th Standard 6 601 5 50! 2 50! 4 671 173 8 to 10th I 2 201 I 101 — — 2 33! 54 II to 12th - - 2 20! - - - - 2

TOI~L JO 100! 10 1001 4 1001 6 lOu& 30

(ci Other occupations

I A~ricu1ture 6 60! 3 301 2 50! 1 17! 122 Lac.c,ur 2 20! 4 40! — — - — 63 Hone 2 20! 3 30! 2 50! 5 83! 12

FOFAL 10 IOU! 10 100! 4 1Q01 6 1001 30

(01 Land-holding

4 40! 4 40! 2 50! I Ill IiI4~ 6 60! 6 60! 2 501 5 83! 19

-- TOTAL 10 1001 10 100! 4 1001 6 100! 30

TABLE NO : 6.2

Ltneaan classified according to (a) length of service, and fbI wage level

Sr. DEl A I I S TYPE OF PAN! PANCHAVAIS?io.

to) Ier.gth of service GOOD AVERAGE INACTIVE NO SUPPLY TOTALNo. tWo. tWo. tWo. 1

1 6 sor~tt1s — — — — — — — — —

2 I )eer . — - — — — — — -

3 I.~ )ears 1 lOt — - — — — I4 ,2 )ears - - I lOt — — — — I

5 2.5 years - — - — — — — — —

~ ~years 3 301 3 301 4 1001 1 lit II7 3 ,ears .r,d a~ce 6 601 6 601 — — 5 831 Il

TOTAL 10 1001 10 1001 4 lOOt 6 lOOt 30

fbI Wage level

I less ttsn F~. 5.’O — — — — — — — —

Ks. ~00-7OO 4 401 5 SOt — — 5 831 14Ks. 100 and above 6 601 5 SOt 4 100! I lit 16

TOTAl. 10 lOOt 10 1001 4 1001 6 1001 30

U

TABLE NO 1 6.3

linesan classified accordir.g to (a) ~t~et~er their training has taken place1(hi participation in training, (ci ber.e~its of training, (di periodiCity ofIineaan’s ceeting.

Sr. 0 E I A I I. S FYPE OF PAN! PAIICHAYATS

;i; ~r.eU,ertraining has taken place GiJUD AVERAGE INACTIVE NO SUPPLY TOTALNo. iNc. lN~. iNn. 1

I Ye~ 9 90! 8 80! 4 100! 6 tOO! 212 N,a I lOt 2 20! - - - 3

TOTAl 10 100! 10 100! 4 tOOl 6 1001 30

(0) Participation in training

I Yes 4 40! 2 20! — — — — 62 No 6 60! 8 801 4 100! 6 1001 24

TOTAL 10 1001 10 1Q01 4 100! 6 1001 30

(ci Benefits of training

I ~no~ledgeabout regular supply of uater I 10! I LA. N.A. 171 22 it3~ito repair pipeline 4 40! 2 6

3 Nos to repair stana-post 2 20! I 34 Hoii to repair tools ard equipaent 2 20! — 2

5 Nca to procure eaterial for repair I 10! —

IOIAI. LU 1001 4 171 14

i~i Ul~en seeting of lancien takes place

I Fortnaghtly 3 30! 3 30! - - - 62 ~crIy 3 30! 2 20! 1 25! 2 33! B3 Bi-aonthly I 10! I 101 2 50! — - 4

4 ~arterly I 10! - — — — — 15 Half-yearly — - - — — — — -

6 Yearly — — — — — — I Ill IAs and ihen required 2 20! 4 40! I 25! 3 50! 10

- TOTAL 10 1001 10 1001 4 100! 6 1001 30

TABLE NO i 6.4

Liriesan classified according to Cal attendance at PP •eetings fbi periodicityof seetir.gs Cc) col;ahicatiori of resolutions and Cd) sethod of cossunication

Sr. OFT A I L S TYPE OF PANI PANCHAYATSNo. —

Ca) Atte;.dance at PP seetirags GOOD AVERAGE INACTIVE NO SUPPLY TOTALNo. tWo. tWo. tWo. 1

I Yes . 10 lOOt 10 loot 4 100! 6 100!2 Ho - - - - — - - -

iUihL 10 1001 10 loOt 4 100! 6 100! 0

fbI Periciiicity of PP seetin;s

I EverysGath 3 301 1 lOt 1 25! 3 50! 82 hery two sontr~s I lOt 3 30! — — — - 43 Every three conChs — — I lOt I 25! - - 24 Every six sontrs — — — — — — — — —

5 &ceayear 2 201 - — — - — — 2a As anJ wIthr~ reamed .4 40! 5 50! 2 50! 3 501 14

TOIAL 10 1001 10 100! 4 1001 6 1001 30

Cc) Cossuoicatir,u of kesolution

I Linenr. give~ copy oi the reiolution 2 20! 1 10! I 251 3 50! 72 Sarpanch passes directly ore to the 65155 6 602 8 80! 3 75! 3 502 203 OtMr procedure 2 202 1 lOt — — - — 3

fOlk 10 lOOt 10 lOOt 4 100! 6 lOOt Si)

(dl flethod of cossienI:.~i~g cosplamnts

I Written 6 4 I 1 122 Oral 3 7 3 5 lB3 Tslephw~e - — — — —

rUrAL 9 II 4 6 30

TAbLE NO ; 6.5

Linecans vm~wsclassified according to (a) waste of water In the village fbiactions to be taken to prevent it.

Sr. D E I A I C. S TYPE OF PAIl! PANCHAY4TS— —

~a ~hetr.er.a~t.ge of eeoter takes place GOOD AVERAGE INACTIVE NO SUPPLY TOTAl.4o. iNn. tWo. tWo. 2

1 Yes - - 2 20 2 50 - - 4

2 ho 10 100 8 80 2 50 6 100 26

Total Responses 10 100 10 100 4 100 6 100 30

Ib) Necsuru proposed to prevent waste

I Provision for fines 3 3 — 2 82 Warning 2 3 I — 6

3 Legal e~tionsh~uIdbe token 2 3 2 I 84 Persuasion I I 1 3 6~ Sarpancti sr.ouIU be mnfc~rsed I I — — 2a h~ae~ers snoumo Ce intoraeo I I — — 2

Proper aamn.tenanece of stand-posts I I — — 2

Total heponsn II 13 4 6 34

TABLE NO : 6.6

Linesans views classified Ca) according to breakage of pipeline (hI who breaks‘tr.e pipeline, Cc) reasons for breakage and (dl tue taken in repairing.

Sn 0 E T A 115 TYPE OF PAW! PAWCHAYATS—

(a) Whether pipelines are broken9 6000 AVERAGE INACTIVE NO SUPPLY TOTAL.No. tWo, tWo, tWo. 2

C ~es 5 50! 5 50! 2 50! 3 50! 15lb 5 SOt 5 50! 2 50! 3 50! 15

Total Responses 10 lOOt 10 100! 4 100! 6 1002 30

fbi NM breaks the pipeline9

Aoti-socual elesents 2 20! 2 20! 1 25! 1 172 6St.e~merds 4 40t 3 30! 2 50! 2 332 IIl(ee-rc.ts - - - — — — I Ill

4 Uo nrealage takes place 4 40! 5 50! I 25! 2 332 12

Total Responin 10 100! 10 100! 4 lOOt 6 lOOt 30

(ci Wtq are pipelines broken~

To provide water to the herd (b~ S SOt 5 SOt 2 50! 1 lit 13etajMerdi)

2 Defect in laying down the pipeline - — I lOt — — — —

S No breaeage S SOt 4 40t 2 50! 5 832 16

Total Responses Ii) 100! 10 lOOt 4 1002 6 lOOt 30

- -Cd) Inc taken in repairing pipelines

24 hoursIweek 8 80! 3 30! 4100! 6100! 2!2.eeks 2 20! 5 50! - - - 74 weeks — —

lweeksandsore - - 2 20! — — — — 2

TOTAL 10 100! 10 lOOt 4 lOOt 6 1002 30

~A(~1E$0 6.8

linecens views classified on the basis of (a) actioR on stoppiqe of watersupply

1 (t.) alterr~~ti~e water resources, Cc) action by PP, Cd) action toprevent damage.

— - ————-—

Sr. (~ El A I I S ITYPE ~ PAIl! PANCHAYATSNo.

(a) Action taken wt.~asupply stops 6000 AV�RA6E INACTIVE NO SUPPLY TOTALNo. iNo. iNo. iNo. ~

I Infors branch-line Office 7 5 50 4 100 6 100 222 Check the line 2 I 10 — — — - 33 flake alternative arrangements fro. 2 4 40 — — — 6

tank, nil etc.

Iota! Responses II 10 (00 4 100 6 100 31

(hi *Iternati~esources of water

I Tank 6 5 4 100 4 61 192 Puhli~ well I 2 - - 2 33 5~ P~iblic bore-well - 3 - — - - 3I Pn~atewell 3 2 — - — -

5 Private Core-well I I — — — Só River-bed th~g-outs I I — - — — 27 Water tanker of the board I - — — — -

Iota) ~esponses 13 17 4 100 6 100 40

Cc) Why is PP wiable to prevent daeage and wastage?— —

I PP members are âfr~id I 33 3 30 1 25 4 67 92 None obeys each other 2 67 7 70 3 15 2 33 14

Total Responses 3 100 10 100 4 300 6 100 23

Sr. DEl A 1 1. S TYPE OF PAN! PANCHAYATSNca.

(a) Pre~ention of damage to 8000 AVERA6E INACTIVE NO SIJFFIY I0TA~anstallatic~r~s No. 1 No. 1 No. 1 No. 1

I Forced contribution to charitable 3 4funds

2 Iipcsir.g fir,es 3 5 — 2 Iv3 Police complaint 2 I 2 I4 Fersuasic,r~ 5 3 2 3 13

Total Responses 13 13 4 6 36

(bI How to make PP effective?

I PP sho~ild have powers2 PP and 6f s~o~Idtake interest3 PP should have powers to impose

ponis~ment4 People ~hc~uIdbe educated5 PP members shculd be trained6 PP snould meet acre frequently1 *11 PP members must attend

7 9 3 a6 8 - 38 7 5. 6

2 3 — 44 3 3 5

6 8 3 45 6 2# 6

TAbLE NO i 6.9

Lineaens classified views on (a) prevention of dama9e, (hI •akeo8 P?i if Isctiv..

7

‘.7

24

r

2119

Total Responses 38 44 (4 34 130

TAbLE NO i 6.10

~r. 8£ I A I I. S TYPE OF PM! PAJICHAVATSPu~. -

(a) Actions to resolve linemens 6000 AVERAGE . INACTIVE NO SUPPLY TOTALproblems No. No. No. No.

I 6SN558 should check the pipeline daily 2 8 2

2 6S~B83should check the line once a meek 3 5

3 PPs should be provided items formaintenance, repair and cleaning

4 PP members sho.sld be paid an honorarium

5 Linemens complaints should besincerely listened to

6 Lineman should be provided with meansfor self-protection

7 Lineman should be provided with abicycle

6 3 2

4 — 3

I — I

I — —

I’)

‘a.

I

2

6 Lineman should regularly mart attendance I

LLCeaanS views on (ml what t~.e 65W5SB should do to remove the problems and difficulties

12

8

I — I

rctai respc,nsem 16 21 5 4 16

TAbLE NO :6.11

Lirseiri uper suq;est:oas, coaeents and criticises.

Sr. DETAILS TYPE OF PANI PANCHAYATStic,.’

Suggestior~5,Ccsierits & Criticises 6000 AVERAGE INACTIVE NO SUPPLY TOTALNo. Mo. No. No.

I DiC~Cit tI.~ia Cf prCnidf3 tor cr.ectir.gpipelines ira repcrtirç to branch-lar.eOitiCt

2 PPs stould net regularly

3 Wages should be paid regularly on

appointed days ar,o .~Id be increased

4 Marking attendance at branch—lu.eoflice ~ould &e weelly r,ot daily

S Nothing to say

6 PP ii actn.

7 Adequate sties for aaintenance shouldbe provided to PPs

8 A uans of tel f-protection should beprovided to mum

9 Linemen should be made permanentelplopees instead of daily-wage workers

10 4 watchman should be appointed

3 5 4 6

3 5 4 2

5 2 2 I

lB

14

lO

I 2

- 2

I —

1 I

3

2

.7

4— 4

Total responses 16 17 14 9 56— -r

CHAPTER : 7

R~COMMENDATI0NS: GSWSSBSROLE PERCEPTION

STATUTORY PROVISIONS

rru,r the detailed analysis of Chapter 4, it is

.L...IncJ~ntly clear that under the Panchayat Act, the Gram

~ILtI.~y~t i~ ~ ~l~tutory, legal and administrative

entity, ~nd it can appoint one committee or several

~i,~i~iiLLCC~ fc~r tI~ compr~hier~sive developmental role

~s~igned to it. ~ specialised committee for drin~ing

~.i~iter can be legitimately set up, and assigned legal and

~~drninistrative powers and named Pani Panchayat without

~i/ difficulty. Its role can also be initially confined

t~ piped water supply’ and can be gradually e>Ctended to

d~v~iop all water resources like tanks, dug—wells, bore—

~~iells and micro water—conservation structures including

irrigation -

RECOMMEN~)ATIONS

it is recommended that *

(a) Initially, the PP may be set—up as ~

informal mechanism, as has been done by the

GSWSS~ so lar.

(b) When the PP becomes effective, through

empowering inputs from the GSWSSB, voluntary

agencies and other government water—related

development agencies, it can assume a

126

statutory status and can undertake water—

resources development and management.

tc) To play the role of a development agency

ra~ving socio-ecoriomlc activities above and

be>’ond i.~ter-resources, along with the PP; the

Gram Panchayat will also have to be activised

and intimately involved.

it is at the Gram Fanchayat level that the coordination

of •ctaviti.. ~ncJ programmes of government and non—

government agencies will be and should be planned and

organised. In this case, it would be desirable that the

Gram Panchayat and Pani Panchayat assume and e~:ercise

statutory administrative powers and role.

STRENGTHENINGNON-STATUTORYFORMS

7.2 The second option is to set up PPs in each

village as a GSWSSB—nominated entity, keeping thL’

Sarpanch as a common link between the PP and the Gram

Panchayat. The nominated character of the PP has its

own op.rationel fle.Cxbility and can play a cataly1~tic

role in the development of water resources.

RECOM1IENDATIONS

The PP as a nominated body can play a

catalystic role in the management and development of

water resources and in socio—econo,na.c development. The

I ~7

•.~~L1 arid ~cilurit=~r1 ~gt~ncie~ will have to provide

strategiC inputs.

ROLE OF VOLUNTARY AGENCIES

It i~ unliIely that wherever the GSWSS~

jj~~ntifies potential for the Regional Water Supply

~.3cherne, a local voluntary agency is available. Even if

av.ilable, it may not be willing or capable of providing

necessary inputs to the GSWSSE( and the local committees.

RECOMMENDATION

Ci) Jr~i case of non--availability of a voluntary

agency, the GSWSSB should set up an internal

Community Relations Group, which can (a) know

and understand the village communities, (b)

prepare them for accepting and absorbing th�~

water—supply scheme in terms of attitude as

,well as monetarily, and Cc) build capability

for community participation and community

management of water resources including a

drinking—water supply scheme.

~ii) However, it would be desirable that while

foitil.ttiuiçj a ~Lh~IrI~, the SSWSSE4 shoula al~

identify a voluntary agency and work throumjh it

to build developmental community relationships.

Inter—action with outside voluntary agencies is

li~e1y to be more relevant, useful and

128

productive for developing community

r-e~-~ ~Iir~. r~utmt from participation to

managing Local iri~~til~Lior,s of the w~t~r-

~upp I y ~ Iit~iim.~, t~u U tj ~im~nagelnen t of the en tire

Regional Water Supply Scheme.

TIME OF RECONSTITUTION

The Gram Fctnchayat is constituted through

t~lt~ctoral processes. All the local, regional and

istional political forces ~irid economic forces compete

For power. Electoral processes tale care of an ever--

changing alignment of forces. The elections try to

reflect the changing reality. These are uncontrollables

~rid neither the GSWSSEJ nor voluntary agencies would lile

to be involved in the competitive power—politics. Yet,

it~ iri~pact has to be considered.

RECOMMENDATIONS

~i.) Whenever the Gram Panchayat and the post

of the Sarpanch are reconstituted throucjti

election~. the Pan.i Fanchayat should aJso bc

re—nominated to reflect the change in th�~’

socio--political reality and to build a smouU1

oper.it ~on~l re1ation~hip.

(ii) In ~a~e cit the FP being statutoril,

constituted as ~ committee of the GP, its

~ -‘ill be automatic and the

irii1i~t.iv~ iiéill rt:~L with Lhe Gram Panchayat.

1 9

7.5 Having examined the possibility and potential

of the Fani Parichayet as a statutory and non—statutory

entity, we now take the role of the PP as perceived by

the GSWSSE4 and on the basis of the analysis of data

available -$rom the Sarpac..hes (Chapter 5) and Linemen

4Chapter 6), make following recommendations for making

it an effective organisation.

CONSTITUTION OF THE PANI PANCHAYAT

(I) rI-s PP members should be nominated i~

consultation with the Sarpanch and other

community leaders (Pare 5.4).

(2) It was the unanimous view of Sarpariches

that after every general election of the Gram

Panchayat, the PP should be unfailingly re-

constituted (Para 5.5).

WOMENIN PANI PANCHAYATS

7.6 On the issue of reconstitution, a thin majorit~

(22) was in +~.~ir of nomination in consultation with

the Gram Panchayat, while a sizeable minority (17)

favoured elections. It is heartening to note that 10

i~-~s favour the constitution of PPs exclusively by women

‘.F.~ra ~ .

• si , I I ~L I ( .-I I L __: g I(iIII I (I ~ teLl womeu flILIIIb(2 r ~

i1~ oil F-F~. Ihere i~. .~ growing favourable opinion

eg~rding cor~titutir~y ~ e~.clusively womens PP. As a

130

majority of FPs favour nomination through consultation,

the GSWSSE4, with ri~c~ssary persuasion and educative work

~-~xth Sarpanches can and should work for an all—womens

F F.

7.8 rhere is substantial opinion amongst PPs -for

cu~nstitution through election. The functions of frI- end

UI- are so intimately related, that organising electicii~s

b’, the GSWSSE4 for the PP would suffer from legal

inadequacy. If separate elections are organised for the

FP, it may be perceived by the GP as a parallel

organisation and a threat. In this case, the PP. though

representative in constitution, may lose effectiveness

in p’ractice.

MAHILA SABHA

7.9 In the existing situation, therefore, it i~

recommended that the Gram Panchayat empower the Sarpaiich

U-rough a resolution, to convene a meeting of all the

-~r~n in the village —— The Mahila Sabha —— and asl th’~m

io prepare a panel of names out of which a final

I~mLnation can be made by the Sarpanch in consultation

~xth the GSW~iSE~.

AGE GROUP

7.10 The villages in this region have a high

illiteracy rate. Yet, there is leadership by the elders

because of their age, e~perience and wisdom. The

I ~i

educated group who have better access to the flow of

.ii~tormation from outside are also capable of leadership.

That, is why, while nominating PP members, a suitable

balance between the educated young and experienced

elders should be maintained, whether they are men or

women (Paras5.7 and 5.8). However, emphasis on formal

education of the members does not guarantee the

effectiveness of a PP (Para 5.8).

OCCUPATI ONAL STRUCTURE

7.11 The occupational structure of the existing PP

members does not show any clear indication of a positive

relationship between the occupational structure and the

effectiveness of a PP. The region falls j.n an arid zcw~c~

and is highly drought—prone. Agriculture as the main

occupation and source of livelihood is highly vulnerable

and does not provide economic stability. Other

occupations are also equally vulnerable.

CATTLE BREEDERS

12 Thougts there are a substantial number of

L~t1Ie—br-eeders, they dci not find adequate

r ~ir e~uLaL.i~~i ~ ti-~ li~: due to their seasonal

iiigration. They are the biggest beneficiaries of such

assured water supply for their live—stock. Women from

these communities should find representation in PPs. It

will be the strongest support structure for

~trengthenir~g frF~, developing mill: cooperatives, craft—

132

won,., fodder plantations and fodder—farm development.

MEETING OF PANI PANCHAYATS

7.13 The frequency of meeting of PPs reflects the

perception of the role of the PP by its members and the

functionaries of the GSWSSB. They meet only when there

is a breal-—down or a crisis in the water—supply. If it

is not resolved for a long time, what is the use of a PP

meeting~ However, 13 out of 33 do meet every month.

RECOMMENDATIONS

The PP should certainly provide feed—b~ck -for

the r~moval ofcomplaints and grievances. HQwever, the

FP can regularly meet every month to assume several

roles and functions, some of which are listed below

(a) status, maintenance, repair and

development of the water resources in the

b) monitoring of the quality of water used

from various sourcea;

(c) hea1th-etatu~ of the village community,

incidence of diseases and availability ot

public health services;

(d) health ~tatu~ of 1ivø—stocI~ and the

av~4.lc~biIity of ..ieterxnary services of the

government and the district dairy~

133

Ce) educational programmes for health.

sanitation and water management;

(f) educative, persuasive and punitive actions

against the defaulterS~ and

(g) monitoring of the collection of water tax,

and promoting community awareness of its

importance.

RECORD - KEEPING

7.15 One of the basic needs for making the FE

effective will be the office support for record—keeping

and follow—up actions.

RECOMMENDATION

It is recommended that record—keeping should be

done by the lineman in consultation with the Sarpanch.

He can also carry out several activities to make the FE

~n effective organisation (Paras 5.11, 5.12).

AGENDA OF THE PP MEETING

7.16 - The agenda or the issues discussed at PP

meetings clearly reflected its role as perceived by the

GSWSSB (Para 5.12). However, the most widely discussed

topic was irregular and unpunctual supply of water, then

attendance at meetings, and third, inadequate supply of

items for maintenance, repair and cleaning.

134

RECOMMENDATI ONS

Cl) The PP can discuss, decide and act on

severa’ water—related issues, if the role—

perception of the GSWSSB changes.

(2.) Immediate corrective action on irregular

and unpunctual supply of water, when the PP has

met and noted the problem, would substantially

add to the credibility and effectiveness of the

PP and it~ members.

(3) The GSWSSE4 should encourage the PPs to

meet and discuss water resources development,

health issues, and the timely availability of

preventive and remedial health services.

WHO REPRESENTS THE GSWSSBAT THE PP?

7.17 ~anrc~ th~ L3SWSS8 is an heirarchical

circjanisation, the PP assumes importance arid credibility

by the place of the functionary in its heirarchy.

RECOMMENDATIONS

(1) It is recommended that in no—supply

villages or in villages with inactive PP~, the

Junior engineer should make it a point to

attend, to give credibility and boost the

morale of the PP members.

135

‘2’ L-Ittt-• proper scheduling and planning, the

junior engineer should attend the PP at least

once a ~t~ar. the importance and contribution

of other functionaries with revised

perceptions, as well as their attendance will

add to the credibility and effectiveness of the

FE.

&) With the stoppage of water supply, the

relationship between the PP and the GSWSSB

slides down to the lowest level. Even it

restoration tal-es time, the PP should receive a

sympathetic hearing and be given moral csiitl

material support in working out alternative

arrangements including tanker supply of ua6ui

CParas 5.16 and 5.19).

RANGE OF ACTIONS PROPOSED

7.16 The PPs credibility and effectiveness also

depends upon the actions it takes against community

members for wasting water or damaging the inst~!lation

or the pipeline.

RECOMMENDAT IONS

(I) ihe actions proposed by the PP are. listed

below in term~ of severity :

- (i) persuasion of the defaulting member

(i i , wjr ii

I ~6

(liii summoning the person to thetrpctriLhs office

(i-.’) taking the person to the ~ranch—linec, t f ice

~v) imposing a compulsory contribution,to a charitable fund in the village

~j, fine -

(vii) police complaint for damagingpublic property (this can be doneby the GSWSSB with the support of

the FE,

(viii) engaging a watchman for a specitiedperiod.

(2) Even if a police complaint and a legal

process is not strictly pursued, the presence

and visibility of police authorities in support

of the PP and the GSWSSE~, can substantially

check.. anti—social activities.

~r’~ flF THE PP AND ITS EFFECTIVENESS

7.i~ There is no co-relationship between the aqe of

FFs and their effectiveness. The four problematic I*~

have been set—up for three years.

RECOMMENDAT I ONS

Wt~~er~ever the village—community faces problems

relating to the water—supply with increasing frequer.cy,

~cJ the ~-‘t- is inet,~LtivC ir, hai~d.iir.g it, thc GSWSSE~

should pl~n and tare strategic actions to resolve the

prtJLJLe~I.~ wilhii, ..i rt~.~sLiII,,t,le 1iin~. This will rebuild a

137

i~armonious and positive community relationship and will

restore the credibility of the FEe.

STRENGTHENING OF THE PP ; SUGGESTIONS BY SARPANCHES

7.20 The Sarpanches, who are popularly elected

Ie~der~ and legal and ddsrlinlstrative heads of the Gram

F-’anch~iyat and the PP, have given their suggestions and

~~r.ta (or a.aL i the F1 a str~nger and more cffective

oi-cjanisation. One group of suggestions pertained to the

r,jle of the GSWSSEI and the other group pertained to

t-~sponees to an operational question in the

q((astionnaire. We have clubbed them together and

classified them into areas of action and necessary

rLLLJiliflefldations made in the foregoing paragraphs of this

Chapter 7. We proceed with the remaining

r.—c:ommendations.

GSWSSB $ STAFF ORIENTATION AND TRAINING

1.21 There has been unequivocal demand for (a)

ij~1dance, (b) advice, (c) attendance and Cd) training

rL~r the FE and its members (Faras 5.45, 5.48). These

~tjj~tions pertain to the orientation of the staff

tc.w~.rc1~ the Sarpaniches. individual members and the FP as

IL ~ rc~at~,~t~ th~ communit’j

~tationship i.e. relationship between the GSWSSB and

taI~ village—level I-F and Gram Fanchayat. To meet with.

cpecific needs, the following specific recommendations

0-re irade

1 :~ü

RECOMMENDATIONS

~1) The operational staff of the GSWSS~ and

others working at the regional level need

orientation and awareness in developing a

healthy, harmonious and participatory

rel.~tionship ~~itr~ the village—community thruuçjI~

the Pani. F’anchayat.

ci The k~ejiuu~l Water—Supply Scheme and xtb

planning, implementation ~nd operations is

definitely an engineering exercise and must be

carried out with utmost efficiency. However,

it is also a socio—economic developmental

intervention into the lives of the rur6~1

communities, and so the engineering statt ~i11

have to be oriented and trained in community

development.

~i The orientation and training programmes

may be divided in three parts I

~) pre-iiiipL~irientation stage

(t’) planning and implementation stage

(c) operational stage

~Fie purpose of the orientation and

tratriirig should be to strengthen the PPs by

ma:~imising their participation and preparing

1 39

them for the second stage of community

management of i’.ater resources including

regional and local water supply schemes.

(5) The programme will cover areas -from the

following list, depending upon (a) stages o~

the scheme, (b) specific needs of a region, Cc)

roles and responsibilities of the staff, (d)

duration of the scheme and (e) specific

training methods like, case—studies, seminars,

lectures and group work.

(6) The list of areas of orientation and

trainina is given below. It can he furt~r

enriched through programme experiences

Ci) Rural Committees, their caste

structure, dynamic relationships,

balance o-f relationship between

various caste—groups and systems,

social heirarchy and its

constraints on the community and

household development.

(ii) Village economic activities like

agriculture, animal husbandry,

occupat~nnal structures, crop—

c~r

nonfarm activities, economic

140

like banks,in trastruc tures

marketing yard, etc

(iii) ~ccess to social infrastructures

like schools, primary health

centres, dispensaries, public

distribution shops, all—weather

roads, electricity, water supply

and their developmental impact.

Declining water resources, their

impact ~n the community, drought

migration, low nutrition levels,

declining agricultural and animal—

husbandry incomes, traditional

crafts, declining purchasing power.

Cv) Importance and critical role of the

development of water resources,

their impact on migration, health,

animal husbandry, eco—régeneratjon,

flow of incomes and nutrition,

consumption and productivity

levels.

(vi) Gram Panchayat and TaluI:a

Panchayat., their powers and

responsibilities regarding health,

their financial resources,

financial status, and their

141

developmentpotential for

programmes.

“vii) Government agencies related to

water and sanitation, their

resources, programmes and

priorities (i.e. Minor Irrigation

Department, Revenue Department,

Water Resources Development

Corporation), non—governmental

agencies working in water—related

activities —— possibilities of

li’-:~ges and collaborations.

INVENTORY CONTROL AT LOCAL LEVEL

7.22 One of the chief causes of waste and disruption

of water supply is the non—availability of items for

rn~intenance, repair and cleaning. The issu. pertains to

Ue proctirement, storage and supply of such items.

RECOMMENDATIONS

Cl) It is strongly recommended that the

present ~y~tem of inventory management at

regional, branch—line and village—level should

be streamlined and adequate stock should be

maintained at the village—level. It does not-

involve any extra cost.

1 4~

(2) The village—wise supply and consumption oi

each item should be meticulously recorded and

monitored to prevent overuse, waste and

pil ferage.

TELEPHONE AT PP MEMBERS RESIDENCE

7~T The linemen from every village visits the

[irarich—line office every day. He is a live

~iumunication channel between the PP and the Branch—i.Lr~e

t.ufLLe. The Esranch—line office and the regional office

are inter—linled through the wireless system. There is

~ suggestion to provide a telephone at the residence of

~n-7 one of the FF members. The provision can add to

~pt~c1’1 communication, efficiency and effectiveness of

‘.i~ ~orkirig cf the scheme.

RECOMMENDATIONS

It is a very positive suggestion and it

can b~ iiiplinneiitod on ~ selective basis. It

can be a valuable communicat~an link between

t,he PP, the UP, the GSWSSB and oTher

promotional and development agencies with the

taluic and the distriLL administration.

(2) The facility should be available at a

public place, liFe the post—office, the

Fanchayat office, a school or a primary health

centre. It should be available to all on a

143

cash—payment basis e:~cept for phone—calls to

the E’rc~rich—line office.

~) The east can be shared between the GF, th~

GSW~SE4, and the user—public. A 5LIit~t(~1E

formula for cost—sharing may be worked out with

some of PPs where the facility can be easily

made available, and the GPs are willing to

share the cost.

— — •— . ~ v—~ r•~r—. — r P.4 r.1 r’rit~l’1Ur(HN £ LII I $ I I I if_I ~

All the employees of the GSWSSB, including the

h~cal linemen are fully and adequately paid for their

~ The lineman who is paid wages on a daily basis,

enjoys an income security which is not available to most

ut the village househo1d~ and even to the members of the

F F.

7.35 Further, the PP is constituted and nominated by

the GSWSSB. Therefore, the nominated members expect

that they should also be adequately rewarded. This

suggestion involves immediate monetary costs to the

~3SWSSB and prospects of its rise in future. Without any

guarantee of improvement in the functioning of tI~e PP,

or for collecting a contribution from the community

towards maintenance and repair, this may only add to

cost. The suggestion may also conflict with the norms

of holding a public post and yet expecting a reward for

144

it. It may also invite a demand for its security on a

permanent basis.

RECOMMENDATIONS

~l) it is, therefore, recommended that instead

of a cash honorarium, status—giving, interest—

generating and role—reinforcing non—monetary

incentives should be devised and implemented.

[hey should add to the effectiveness of the

individual member and the PP as an

organisation.

~.2) Some of the non—monetary incentives are

listed below

(a) Two day orientation programme forthe PP members at Jalseva Instituteat ~andhinayar.

(b) Special orientation programme forSarpanches for water resourcedevelopment.

Cc) Yearly refresher programmes atmodel demonstration institutionslike Bana~ Dairy, Dant.ivada Campusof the Agr.icultural University ~r

fodder—farms and fodderplantations.

(d) Exposure programmes to developmentprojects.

Ce) Showing video—casettes anddocumentaries of other developmentprojects at Branch—line meetings,and to Sarpanchas at Dranch-lir~.~Committees.

(f) Inviting other Sarpanches to assistin solving village—level proble,iisand of Branch—line—level problems.

145

(g) Giving yearly awards to well-managed PPs of an ear—marked amountwhich may be used for waterresource development in thevillage, and for health andsanitation related work.

(h) Members of the best—manageà PP maybe taken on a study—tour to State—level institutions.

(3) The Gujarat Government grants awards to

the ‘best Gram Panchayat in every district

every year. Their norms and criteria can be

conveniently adopted. -

TRAINING OF LINEMEN

7.36 The attitude, behaviour and performance ~o~•

linemen is vital in the strengthening of the PPs and

building smooth and productive community relations.

7.37 Though 27 linemen knew about the training, and

14 about the benefits it offers, only 6 have actually

undergone training which is mainly technical training -

for maintenance and repair.

RECOMMENDATIONS

(1) It is recommended, therefore, that th~

linemen should be provided with training arid it

should start at the earliest opportunity.

(2) The training content may include z

Ca) technjcal training in maintenance

and repair

146

(b) record—keeping and processing o4

complaints

Cc) role and responsibilities towards

the PP

Cd) nature of rural communities and4

building positive community relationships

Ce) some of the components of the

orientation and training pr~ogramme for

the staff of the GSWSSB may also be

introduced.

(3) The linemen should gradually be prepared

for (a) their existing role in the PP, (b)

thir •Htended rol, in terms of watsr—rueurc.

development and Cc) the PP as a social

organisation assuming a developmental role for

the entire community, with women as its centre.

(4) The monthly meeting of linemen at the

Branch—line office should be fully utilised for

participatory training in technical aspects and

community relations (Para 6.13).

(5) Linemen should be trained to grow into

extension workers for developmental activities

in the field of health and sanitation, water

resource development, ecological regeneration

and for enlivening the PP and the GP.

147

EFFECTIVENESS OF LINEMEN

7.38 In Chapter 6, the linemen have made several

stmcjgestions ~nd comments about the problems they face

-wU wlictt the (3Sw5bB can do to resolve them. They have

b~n analysed earlier (F%efer Faras 6.32 and 6.33).

Somc of their s(’cJcJestlorIs and comments have

L~t~ inc.orporated in the recommendations made earlier in

%II~ ih~pier and h.~ve ii~L heen repeated here. Other

~j~jet~t Lun~ are Lun~1U~red and recommendations are made

in the following paragraphs.

RECOMMENDATIONS

7.40 The recommendations pertaining to making

linemen more effective and efficient key—persons are

given i.~!rw (Refer Para 6.33) I

(1) Wage. •hould be unfailingly paid on

appointed days.

(2) The practice of marking attendance daily

at the Branch—line office should be continued,

but

() The linemen may be provided a bicycle ~

an incentive to improve their performance and

devClLp better community relations.

(4) The linemen should be provided with means

of sel f—protection.

148

SECURITY STAFF

,.41 To further support the PPs authority and

strengthen it, the GSWSSBmay appoint a security staff

to watch and deter the damage done to village—level

~1~1allationc and to pipelines. On the recommendation

ç,f the PP, it can also take legal actian against the

offenders.

LINKAGES WITH THE SARPANCH

/.42 Although the linemen report to the Branch—line

office, they should be attached to and be rooted in th~

PP with the Sarpanch as its Chairman. They should

convene meetings of the F’P at the instance and

initiative of the PP chairman, keep records of the

a~eetLng, and should promptly take, follow—up action.

7.43 This basic dimension of the linemans role

thould be e.;plained and insisted upon by the staff oF

the bbW5SE~.

CONCLUDING REMARKS

7.44 In this chapter, recommendations have been made

according to the perception of the GSWSSBof the k-ole of

the PP and they can be considered and implemented

without any loss of time.

7.45 However, during the action—research on the Pani

149

r’~r~cha~at afld collaborative actions and programmes

carried out with Self Employed Women’s Association

‘~SEWA), it has become abundantly clear that the role—

perception ot the GSWSSBwill have to be ‘extended to

include developing and managing all the water—resources

of a single or group of village communities.

Obviously, an extended role would also include

the present role of the PP as perceived by the GSWSSB.

Ihe r-~commendations made in this chapter for that role,

wilt not be repeated and only those recommendations

=peci~tc to the extended role will be discussed in the

fol lowing chapter. -

150

CHAPTER 8

EXTENDED ROLE OF THE PANI PANCHAYAT

COMPREHENSIVEWATER RESOURCEDEVELOPMENTAPPROACH

STABILISING IMPACT

u.l The drinling water supply to 95 rural communities

~ci~ a major intervention of importing water by pipeline from

a ~.rplus area to a deficit or zero—supply area. It has the

tullowing major developmental implications.

~) It instantly provides stability to the village

communities from migration and liberates women

frcjin the drudgery of fetching water.

~b) It immediately provides a life—supporting input

and mirilmises the loss of livestock which is

the second main mobile asset (next only to

agriculture) which generates income.

c) A given volume of water—supply by pipelines

very positively contributes to the overall

water availability in the region and also saves

the cost of supplying water by tankers during

normal and drought years in an arid zone.~

TWO OTHER DRUDGERIES

8.2 Working with women’s groups in the region, it was

realised that apart from the struggle to get drinking water,

there were two other areas of drudgery which women face, and

151

wrliLh should be ended at the earliest in order that women may

ittilt.~e their time and energy for more productive uses. ihu:’,

~~re fetching fodder for the livestock, and collecting

t i rewood

With the passing of time, these two forms of wc..ri

h,,,.-e become unproductive, owing to the degradation of the

,:ri.~ ii olbment and receeding green—cover.

u. ,. Therefore, we concentrated our efforts on reviving

LhC defunct milk cooperatives and worked on improving and

~h.i~ing their participation in dairying activities.

u~is ,‘lng was essentially a women’s activity but women played

,‘o role, nor were they visible when product—processing and

tar I~tiiig was institutionalised.

FODDER SECURITY SYSTEM

Just like importing water from outside the region,

we realised that instead of supplying fodder only during

tJi’utight years, -fodder can be brought in even during noremi

years; ‘and whenever economical, to put in place a fodder

~t.~cttrity system through local procurement. It will not only

pr~vunt ass of animals but also an increase in milk—yield;

~ts~i consequently an increase in the income of the dairy—

. ~. hr~si~who3d.. A email pilot experiment with twu

vilIii~i;tg milk cooperatives of limitocl moans was carried 04t by

£iCWA in the summer of 1990 and operatjona~ data related to

cuL~t—components and feasibility of the system is available.

~n ‘it,retjona) mechanism has also been tried out. Further

252

details about the rationale and operations are provided in

two papers attached here as Appendix 8.1 and 8.2.

£~L5 Developing fodder farms, fodder tree plantations and

pasture—land through womens participation and involvement is

a basic and major developmental input. Within reasonable

time, the import of fodder should be replaced by local

production through (a) fodder farms, (b) fodder tree

plcifltatiOflS and Cc) promoting agricultural crops, which

provide larger volume of residue useable as fodder. This

view has been supported by the technical advise provided by

Lhe Gujarat Agricultural University to SEWA.

These basic developmental considerations have

prompted us to promote nursery—raising and tree—plantation.

From a modest beginning of raising about 1.5 lakh saplings in

t’h~ first year of 1988—89, a quantum leap involving 100 women

~L)f reisiseg ~4 laI-.h saplings has already been taten.

Additionally, about 2~0 women have been trained in nursery—

r~.ising who are ~een to tale sapling—raising, either as a

yrc~up or on a household basis, in their backyards. What’s

1iiuv~cIiately needed are arid—zone—specific norms and standards

for funding, survival norms, risk components and mode and

method of payment to women producers.

153

EMPLOYMENTTHROUGHECO-REGENERATION

U, 7 The significance of this response lies in an

~JJitiut~l work opportunity which will provide the women a

re~ ~1d~t’on~1 income through these eco—regeneratiVe and

economic—regenerative activities’. It will also generate

income through the selling of saplings, raising them on their

own land, or raising a plantation which may provide further

income every year, thereby strengthening the secured income

of women producers from activities lit-c dairying. This

approach will satisfy their need for fuel as well.

8.8 This is how a strong linkage has been identified and

strengthened between women, economic regeneration and

ecological regeneration. These women—related activities fit

irs well with any of the activities falling under (a) anti—

desertification programmes, (b) ecological—regeneration

programmes, (C) desert development programmes or Cd) drought—

pruolir,g progra.tbmes. At operational level, their strong and

unalienable bond with women’s socio—economic development will

be concretised.

8.9 We are convinced that economic regeneration of the

rural communities and ecological regeneration go hand—in—hand

and can never be fragmented. On the contrary, they can

create a synergetic impact through the participation and

leadership of women.

154

HIGHER RATE OF ECO-REGENERATION

8.10 Compulsive migration of pastoral communities and the

migration ‘of animals from a region disrupts the eco—

regenerative bio—processes of the area. Therefore,

stabihising the pastoral and other rural communities, and

providing them with a fodder security system bringing fodder

from surplus areas will immediately arrest degenerative

processes. Fodder raising and supplying activities will

bring about a breakthrough in releasing the eco—regenerati’.t

forces at a faster pace than the eco—destructive,

degenerative forces. Essentially, the pace and thrust of

oco—regenerative forces and processes, should be greater than

the degenerative forces and processes. The pace and thrust

sh~Ould be increased through mobilising rural communities in

treir struggle for survival through financial, administrative

ai~d technical support.

CRITICALITY OF WATER RESOURCES

0.11 The ecological regenerative processes cannot be even

thought of without water, which may be initially imported.

However, all the existing available water resources should be

put to the optimum use. This should be further augmented

through surface—water collection and conservation systems at

community and even household level.

8.12 Water—resource management, including conservation,

development, and augmentation calls for a hali~tic approach

towards water—resource supply. The supply of drinking water

155

at the regional level, which is a substantial import at a

cost, should be further supported by a comprehensive water—

r~uurce development approach for both economic and

ecological regeneration.

If this is not done in a specified time—period along

with the drinking water supply, the consequences are amply

~“iJ~nt in the Racihanpur—Santhalpur region. The stoppage of a

wat.er-supply scheme compels the rural communities to search

for alternative existing resources. We will marshall

available dat. from earlier chapters to justify comprehensive

water—resources development approach.

WHENTHE WATER SUPPLY STOPS

8.14 The biggest problem -faced by 20 Sarpanches has been

the need for a punctual and regular supply of water (Para

5.48). Disruption of water—supply disrupts daily life,

home—life and the •conomic activities of a community. The

most severe and adverse impact is on women who’have to cope

with the crisis and make immediate arrangements for

alternatives. Stoppage of water also seriously undermines

the credibiliy and authority of the PP and even the GP.

Regular and punctual supply and not just a supply’ should be

the basic objective and purpose of any water—supply scheme.

Th~ stoppage of water-supply takes place due to

breat-age of pipelines and -for other reasons. 1~ PFs

including 6 no—supply and 4 inactive PF’s reported that no

156

bre~i~~age took place. 2 PPs reported that the breakage was

due to cattle—breeders and ~ PPs reported tree—roots as the

cause. -

8.16 However, 25 PPs reported immediate restoration which

was very creditable for the GSWSSBand its field staff. 4 PPs

reported that it took about a ‘week to a fortnight ir,

restoration (Paras 5.32 and 5.33).

DURATION OF STOPPAGE

8.17 What is causing greater ani~iwty is that 21 PPs faced

total stoppage of water—supply last summer. The duration of

stoppage was ;

9 PPs faced stoppage for one week

5 PPs faced stoppage for one fortnight

2 PPs faced stoppage for one month

4 PPs faced stoppage for two months -

0~l8 If the total stoppage is concentrated in the summer

months, and the number of affected villages and the duration

in terms of days is increasing, the cause may be due to over-’

~‘ ‘•~- ~nc~-’~~ina use of water by the villages closer to

(t~ ~ water-—wor~s, or a fall in supply due to river—bed

trench—wells or both. There are several technical solutions

tL i~otri Ihese problems, and they can be worked out within a

r~onab1e’ time—frame. However, our immediate concern i~

wh~t h~ippens to the community and what and how a solution is

worked out. What h.ppens to th~ PP and the OP, and what role

157

~I.L, ji1a~ in crisis management’~ How does it affect their

~~JiL~L’ and effectiveness? What is the impact on the

i-elaLio,=~Iiip between the village community and the GSWSSB?

ALTERNATIVE SOURCES OF WATER-SUPPLY

0.19 In a normal or good monsoon year, the alternative

water resources the village communities u5e are given below

~Para 5.36) ;

16 PPs use village tanks

15 PPs use private bore—wells

2 PPs use public wells

3 PPs use private wells

3 PPs bring water from neighbouring villages bybul lacE—cart.

8.20 The lineman is the first person to face the crisis.

He has to start restoration work and also assist the PP and

the vii lage community in making alternative arrangements.

Out of ~O, 6 linemen reported that they assist in looking for

alternative arrangements. Some villages may have multiple

water resources available and some a single. The linemen’s

data provides the followig pattern (Para 6.20) :

51. Water Resource No. of110. dependent PPs

1. Water tank 192. Public well 6

. Public bore-well 64. Private well 55. Private bore-well 56. River—bed dug—wel 1 27. Water tanker by GSWSSB 1

158

This data pertains only to ~0 village communities,

L~t th~ piped water has reached 79 villages in two talukas.

it we leave aside the ~i11ages not covered by the Rural

Water Supply Scheme, it is absolutely necessary to know and

to plan for the develápment of alternative resources.

CONTRIBUTION TOWARDS COSTS

0.22 One of the objectives of the study has been to find

out to what extent the village communities can contribute

towards the water supply scheme. In Chapter 5, it has been

analysed that water tax is imposed in all the villages

ranging from Rs. 5 to Rs. 20 per annum per household. The

collection level varies according to the rainfall and

sgricL~1tL~raI incomes, willingness and capability of the OP to

collect, and of course, an assured and punctual supply of

water to the community. Disruption and stoppages adversely

~ff~t the willingness and ability of the OP to collect ta~es

(Para5 5.51 to 5.61).

8.23 It is also the legal responsibility of the GP to

maintain and develop water—resources and to keep them in

hygienic conditions. Tax collection or mobilising the

communitys resources will bepossible only when water—supply

is assured. -

REDEFINING THE PP ROLE

0.24 In the preceding paragraphs, we have tried to

‘~ntify and analyse tfle grounds for re—defining the role of

159

the PP which has been pushing the GSWSSB towards a re-

definition of its own role—perception. The re—definition

will not only strengthen the PP, but also the village

communities and their willingness and capacity to contribute

towards the cost of water—supply and participation in their

management. It is with this analytic framework that - th~

following recommendations are made :

RECOMMENDATIONS

FINANCIAL SUPPORT TO THE PP

The Pani Panchayat will have tà be further

strengthened to play an ‘extended role’ of water—resources

veAOlJfflCflt. Ihough they are statutorily and le~j~lij

empowered, they will have to be financially supported to hire

~.ervices in the following areas :

Li.) planning and designing

(ii) technical services for implementation

(iii) managerial services for maintenance and repair

LIST OF WATER RELATED AGENCIES

8.26 The Pani Panchayat will have to d~al with several

acjeIicles of the government and semi-government corporations,

who implement programmes and schemes related to water. Some

such bodies are i

(1) Gujarat State Water Supply and Sewage Board

(2) Gujarat State Water Re~ources DevelopmentBoard (for drilling tube—wells)

160

3) Gujarat Government’s Minor Irrigation‘Department

(4) Gujarat Government’s Rural DevelopmentDepartment (which handles drought—prone areaprojects and desert development projects)

(5) Indian Petro-Chemicals Ltd. (who hasdeveloped a plastic—based technology forpond-linking, drip irrigation, mulching, etc.i

(6) Gujarat Rural Developmet Corporation(which undertakes developing fodder farms)

~7) Gujarat Land Development Corporation (whichundertakes water—shed management projects)

(8) Government Revenue Department (which operatespublic wor~s)

8.7 The FPs will have to be informed, made aware,

~ and trained in the e::istence, functions and role

of these agencies and how can they negotiate and avail

th~nselves of their services.

At present, the agencies provide services ri~ht from

planning to implementation, operation arid maintenance.

Financial resources are also channelised through the

agencies. It is recommended that the agenci.. should operate

protessionally, and each service, or package of services,

should be charged separately. The PP should have the option

to hire them — dealing with them as clients, rather than as

bene f ic iaries.

0.29 This implies that the funds for water resources should

be channelised through the PP and the GP, and payment should

be made on the satisfactory completion of a particular tasi

or service.

161

-7

ACTIVISING THE BRANCH—LINECOMMITTEE

Where the water—resource development proi.ct falls

within the boundaries of more than one PP, the Branch—line

Committee (BLC) or group of PPs, under a special agreement,

~nay collectively and jointly hire the services of relevant

ager.cies. The district administration should make the funds

available to the PP or a collective of PPs.

COMMUNITY-WISEDATABASEOF WATERRESOURCES

8.31 The GSWSSB has the mechanism and staff which

ideri(ifie~ ‘no resource villages on the basis of certain

~ novm~. It is recommended that the same mechanism

m~y L~e utilised for identifying all other traditional water—

r~~i~i~es in terms of

(a) quality of water available from different

water resources, -

(b) seasonal variation in available water,

(c) water—supplying and water—storing capacity,

(d) quality of water in relation to the ~.veral

alternative water uses, andCe) private wells and tube—wells, on which the

villages rely for water during lean—periods,summer or drought.

COMMUNITY—WISEWATER RESOURCEPROFILE

To begin with, a water—resourc~~ development

potential profile should be prepared for i

(1) all the village communities covered under- various water-supply schemes of the GSWSSB,

162

~2) where such schemes are in pre—implementation- I ~ •

T) where they are in the planning Stage

COMMONDATA—RESOURCEFOR ALL AGENCIES

Similar project or scheme identification mechaflism3

operational in other agencies may collaborate their

activities and programmes for minimising costs to each one of

n~ th~ir operations and ma~imising gains to the vill~ge

contmuri it ies.

JAL SEVA INSTITUTE ; COORDINATING ROLE

5.34 The Jal Seva Training Institute set up at

1~andhinagar should play a vital coordinating role with

agencies working towards water—resources ~development. -

REDEFINED TASKS FOR THE JAL SEVA INSTITUTE

ti The Jal Seva Training Institute should take up thr~

tcilIo~w1cj specific tasks which will ultimately transform the

UP anu the GP from beneficiaries into clients

1 ) development of norms, standards and criteriafor development of water resourcesp

c2) development of methods and norms -fbr planning~nd cost—e~1culation~ for alternative water--resources;

(,~) developing, designing and planning a cost—estimation unit for village communities on apaid—service basis;

(4) studies on available and potential watL-tresources, the multiple uses of water—u~e—w~.costs and prioritisation of resourc’~-jj~.water—uses;

163

(2) where such schemes are in pre—implementation- t . ~unJ

c3) where they are in the planning stage

COMMONDATA—RESOURCEFOR ALL AGENCIES

Similar project or scheme identification mechanisrn.5

operational in other agencies may collaborate their

activities and programmes for rninimising costs to each one of

ii their operations and ma;~1m1s1ng gains to the village

ccimmur1ities.

JAL SEVA INSTITUTE ; COORDINATING ROLE

5.34 The Jal Seva Training Institute set up at

ridt~i~~j~r should play a vital coordinating role with

agencies working towards water—resources development..

REDEFINED TASKS FOR THE JAL SEVA INSTITUTE

u. The Jal Seva Training Institute should take up the

~cillo~irug specific tasks which will ultimately transform the

PP anti the GP from beneficiaries into clients

(I) development of norms, standards and criteriafor development of water resources;

(2) development of methods and norms fbr planningend cost—calculations for alternative water--resources;

~3) developing, designing and planning a cost—estimation unit for village communities on apaid—service basis;

(4) studies on available and potential wal&:~resources, the multiple uses of water—u —~~_

costs and prioritisatian of resource--wj~-~~water—uses;

163

listing of existing water—resources and theirmultiple uses, and

2-) r~sources, income and expenses of each GramFanchayat, and the benefits it has been ableto draw from government schemes.

STRENGTHENING THE INFORMATION BASE

~ voluntary agency can procure information about -

s~,er~l schemes under various government departments and

JL~LlIit~(j ~igenc1es, transmit the information, and prepare

tj~ c-~ l:~nchayat and Pani Panchayat for implementing the

It may assist in preparing the necessary proposals

a~-~d~i~L~riL them to various agencies.

EXTENSION SERVICE FOR PARTICIPATION

voluntary agency can also provide e>~tension

-i ~ tJr~iuyh ~-isit~, orientation and training programmes,

L~n Totivate the village communities to participate in

ttic iuI~1 ~ implementing and operating the schemes.

CREATING A PROrIOTIVE ENVIRONMENT

~3.4O Through extension work with several social and

i~concjuic groups in a village, and through appropriate

communication with them, it can create a positive environment

to strengthen the efficiency and effectiveness gf the PP and

the (SF, and encourage them to tale up other development work

and progr-ammes

165

listing of e~istiny water—resources and theirmultiple uses, and

~ resources, income and expenses of each GramFanchayat, and the benefits it has been ableto draw from government schemes.

STRENGTHENINGTHE INFORMATION BASE

~ voluntary agency can procure information about -

s~ver~l schemes under various government departments and

~ agencies, transmit the information, and prepare

t.i~- Gram Fanchayat and Pani Panchayat for implementing the

schece. It may assist in preparing the necessary proposals

a~d submit them to various agencies.

EXTENSION SERVICE FOR PARTICIPATION

voluntary agency can also provide extension

i..~ thr~.iugh visits, orientation and training programmes,

~-~i-i~h ~ ~-,otivate the village communities to participate in

t-or i&tI~1 ;~.j, implementing and operating the schemes.

CREATING A PROMOTIVE ENVIRONMENT

~3.4CJ Through extension work with several s~ci.l ~nd

econc,iiie groups in a village, and through appropriate

communication with them, it can create a positive environment

to strengthen the efficiency and effectiveness ~f the PP and

the GF, and encourage them to tale up other development work

and programmes. -

165

IDENTIFICATION OF TRAINING NEEDS

8.41 It will also identify the training needs amongst

various groups like women, members of the PP, village

Sarpanches, community leaders other than the elected

representatives, and - linemen. In consultation with the

6519568 or other water—related agencies, it can design

training pregrammis and implement them. The training

programme may include (a) an exposure programme, (bi

demonstration, (C) exhibitions, (d) class—room methods, and

(e) slides and ~videos.

DETERMINANTSOF ROLE AND ACTIVITIES

8.42 The nature, scope and intensity of an activity of a

voluntary agency will be determined by its involvement at a

particular stage of the scheme for water resource development

and the effectiveness (or lack of it) of the PP and GP, and a

cohesive development—oriented environment within the village

community.

CONGRUITY WITH THE JAL SEVA INSTITUTE -

0.43 In a situation where no outside voluntary agency is

available, or a local voluntary agency does not ecist, the

Jal Seva Training Institute will play the role designed for a

‘olur.tory agency. in fact, there is substantial congruity

between the two.

166

AREAS OF SHARED RESPONSIBILITY

8.4e Wherever a voluntary agency is willing to undertake

the responsibility in collaboration with avillagé community

or a group of village communities, the GSWSSB should be

willing to assign the role and responsibility with the

necessary technical and financial support. Technical

upgradation of the knowhow of the workers can also be

providc~d for. The areas o4 such shared responsibilities with

the village—community and voluntary agencies are

i i~t~-~tively listed below :

~l) preparing village community profiles for (a)socio—economic status, (b) potential forwater—resource development and Cc) financialstatus of the GP,

~2) planning, designing and cost—estimation ofvillage level installations, and even inter—village projects,

(3) involvement of local labour for th. civilconstruction of schemes generating localemployment and income,

(4) providing maintenance and repair services •~oreconomic consideration, -

(5) developing managerial, technical and financialcapabilities of the PP and the GP, and

(6) monitoring on behalf of the villagecommunities the implementation, operations,and maintenance and repair.

COORDINATING ROLE OF THE VOLUNTARYAGENCY

v.47 To promote the ‘extended role’ of the PP and the GP

for water resource development and to establish productive

linI ages with several agencies, a voluntary agency should be

68

asled to play a coordinating role for which it should be

financially supported. -

COLLABORATION BETWEEN VOLUNTARY AGENCIES

0.40 With the concurrence of the village communities, and

through the PP and GP, two or more voluntary, agencies with

spc~ci~Lised capabilities may be encouraged to undertake joint

proj cc ts.

8.49 The recommendations made in the earlier paragraphs

are largely based on the studies and field—experience gained

in the Santhalpur Rural Water Supply Scheme. We feel, it has

significant relevance for arid—zone regions and drought—prone

are~s~ wr~ere water is the most scarce developmental input,

h. II ~ i al I, and economically.

BEYOND WATER RESOURCES

However, our field experience has gone beyond the PP

and water—resources development. It has significantly

contributed towards activising and organising women for equal

participation and integration in development processes. The

lnsightb developed ~nd experience gained have been shared in

the concluding chapters in the form of recommendations for

generating and accelerating the process and forces of

development with a focus on women’s participation .~.id

leadership.,

169

CHAPTER 9

POLICIES AND STRATEGY OF ORGANISING WOMEN

ECONOMIC—ECOLOGICAL REGENERATION

9.1 Can the Pani Panchayat become an organisational

instrument for generating and reinforcing developmental

~ .r~rl Forces with women as its main focus? We have

tritd to work on answers through action—research, where

actiL~n n~s stolen a march over research and research ha~ to

up Ly developing a conceptual framework to formulate

programmes and projects.

9.2 There are 3 major challenges faced by the action—

research project;

‘a) Can environmentally threatened communities in

an arid zone be involved in economic and

ecologically regenerative processes?

(b) To what extent, and in which form is it

possible to involve them?

(C) How can women’s participation and status ~e

enhanced so that they can play a leadership

role in the community and in managemónt?

9.:- SEWA is exclusively a women’s organisation, which

through an interaction of macro and micro level realities

tries to respond to the concrete needs of women by forming

unions and cooperatives by Trusteeship. SEWA is aware of

170

-~everri1 other organisational forms and structures, but has to

ir~a~ some beginning within the existing administrative,

!~cj~l, fiscal and financial systems. It has been a

constraint and a challenge. SEWA has tried to cope wi~th it

by wohing on action projects which are rooted in the grass—

root realities of women in urban slums and in rural

communi ties.

9.4 The present action research project in Santhalpur

and F~adhanpur talukas of Banaskantha district is yet another

irir~ovative exercise in responding to (a) women’s

participation and centrality in the development processes at

rural community level and (b) participation and centrality of

rur~1 communities in the development process.

The present report has definite terms of reference

to find out how the Pani Panchayat, an organisational

structure, set up by the GSWSSB to involve village

communities in the management of rural drinking water supply

scheme ‘functions. We have tried to answer the issues

involved in Chapter 7 within the framework of the role—

perception of the GSWSSB, with detailed operational

recommendations. However, we have also realised that water

being the most critical developmental input, the role of the

GSWSSB will have to be extended to the development of all

water resources. The credibility and effectiveness of the PP

can be substantially strengthened by a role redefination and

Ly uup1~ortirtg j.t ltsrough multi—pronged aciiuiii. These

171

actions have been identified and spelt out on the basis of

wor~ i.ng with women in rural commurLitles and their survival

and sustenance needs. The operational details are presented

in Chapter 8. Again, it is with a view to strengthening the

FP as an organisational structure as perceived by the GSWSSB.

9.6 However, the participation and centrality of women in

community—based organisations like the Pani Panchayat and

Gram Ponchayat can be realised by developing women’s

capabilities, skills and understanding of economic processes

and forces, which threaten their survival. By learning to

handle, and use them to their own benefit and advantage, as

an individual a~d as a group, they can succeed in overcom?ing

them.

9.7 The experience of SEWA in the past 2 years has shown

th~t women’ s response to this approach has been beyond all

optimistic expectations. The programmes and activitie% have

focused on household viability through income—generation,

slill-formation, suill—upgradation, asset—building and

joining productive processes. Basically, it is an

identification, activisation and empowerment of their

producer—worker status.

9.8 The Pani Panchayat and Gram Panchayat are legally

and statutorily empowered to take up most of the

developmental activities, including women~s programmes. They

need empowerment through building their financial,

172

administrative1 and technical capabilities to identify and

develop community assets and the environment.

9.9 Further1 there are a large number of state—promoted,

state—managed and state—financed agencies, boards,

corporations and institutes. They have their own structures,

programmes, priorities, budgets, targets, norms and criteria

of operation.

9.10 SEWA has tried to establish a developmental link and

relationship with them. The experiences have been documented

by SEWA in their progress reports and specialised docLiments

for formulating and shaping of future programmes and

organisation of women around the producer—worker status. The

forms of women’s organisation~ will ha’~ to be flexible in

mp~tino with the women’s economic ne~d~ arid the nature and

type of support ~xtended by the multiple developmental

agencies.

9.11 Most of the specialised development agencies extend

support to women as - beneficiaries or as an individual

entrepreneur. What is needed is that the agencies shoLild

spell out their policies towards organisational forms and

structures for women and towards rural communities e.g. the

GSWSSB hascourageously thought of and is working towards a

community—based participating organisation — the Pani

Panchayat. Similar exercises will have to be gone through by

all such promotional agencies. It is solely through

developing a definite policy towards building women’s

173

organisations that women’s participation and management

capabilities and skills can be increased. Motivation, work—

awareness building, training and asset—building projects and

programmes can succeed only through organisation building.

9.12 The same approach will be necessary for promoting

the participation of rural communities in the management of

any schemes, activities or programmes.

9.13 What is recommended here, is that tile actions

proposed in Chapter 7 to strengthen the Fani Fanchayat may be

initiated immediately, keeping the development of all water

resources as a medium—term goal.

9.14 The processes of increasing women’s participation

may also be launched simultaneously. Necessary actions have

already been suggested.

9.15 If the issue of women’s participation and centrality

is framed more sharply, a more pointed question is raised :

is it the strenghtening of the PP which will generate other

socio—economic forces of development, or will women’s and

other economic activities in fact strengthen the PP? Our

overwhelming experience shows priority for the second

approach, without sacrificing the action involved in the

first approach.

9.16 Can the Pani Panchayat and Gram Fanchayat not play

the role of a social organisation and a catalytic agent? The

question is not whether they can. The real issue is when and

174

under what conditions and circumstances” The (3P and the IF

will have to be supported through the transfer of resources

—— financial, technical and administrative. The formal

structure, though representative in character, has to find

substance, meaning and a resource base.

9.17 The OP and the PP are the twin political—’cum—

administrative organisations at the village level. Several

social structures like schools and primary health centres

have also been extended from the top. So are several social

services.

9.18 However, the economic structures and the

relationships that begin to penetrate the rural communities,

with the growth of transport and communications, and the push

and pull of market—mechanism and ma~rket forces, do riot male a

positive impact on remote, isolated communities. The initial

impaci on the economy and the ecology of the co,nmunities is

of marginalising and impoverishing. How can the

impoverisning ~r ~iationsnip be ir ~ ,~.J ~ ~••.

one?

9.19 SEWA and FPI have worked for two years to find out

areas of actibn and need—based activities which can be

developed into new forms of groups, organisation and

relationships which can lead to the household viability of

women, ‘viability of their economic organisations and of

course the viability and effectiveness of the GP and the PP.

1 7~

9.20 The activities and programmes talen up E~ 1~r ha~e

been dominated by the qeo—cliniatic conditions and the socio-~

cultural environment of a particular region, an arid :one.

The selection of activities and programmes wil certainly vary

in other geo—climatic, socio—cultural conditions. However,

the concepts, approaches and priorities that have been

developed can be creatively utilised in other regions whose

water—supply schemes have been implemented or are in process.

9.21 SWEAs decision to work in a remote desert region was

an act of faith, an exercise in dedication, a mission to taFe

on a tough challenge. The initial period of one year from

September 1988 to September 1989, for action—oriented

research received an overwhelming response from women and

their rural communities. The experiment haF been extended by

one more year from September 1989 to September 1990, with

accelerated support from the Netherlands Government.

9.22 A number of government departments and other

promotional agencies have also extended financial, technical

and administrative support. Very soon, well—planned 3 or 4

year projects will be launched. Though the research on Pani

Panchayat by FPI concludes with this report, it is hoped that

because of the centrality and leadership of women and their

organisations, the economic and ecological regeneration of an

arid :one will tale place, and the women~s houseIiold~. their

economic organisations and their rural communities will

emerge economically empowered to turn niarlet forces and

17~

economic relationships in their favour, and become

equal partners in progress.

* ****** * * *

/

Documents

FANI P~~NCHAYA1 822 INtLi9O AN E~(ERCJSE IN TV · PDF file,iilages, Radhanpur taluLa 9, and ILlnkrai taluka B vLI1aqi~, with e total population of 77,779. With the addition of 28 villages,